REPORTS OF INTERNATIONAL ARBITRAL AWARDS RECUEIL DES...
Transcript of REPORTS OF INTERNATIONAL ARBITRAL AWARDS RECUEIL DES...
REPORTS OF INTERNATIONALARBITRAL AWARDS
RECUEIL DES SENTENCESARBITRALES
Eritrea-Ethiopia Claims Commission - Final Award - Eritrea's Damages Claims
17 August 2009
XXVI pp. 505-630VOLUME
NATIONS UNIES - UNITED NATIONSCopyright (c) 2009
ParT XVii
Final Award Eritrea’s Damages Claims
Decision of 17 August 2009
Sentence finale Réclamations de dommages de l’Érythrée
Décision du 17 août 2009
partxvii—FinalAWARD eritrea’sdamagesclaims 507
FinalAward,Eritrea’sDamagesClaimsDecisionof17August2009
Sentencefinale,Réclamationsdedommagesdel’Érythrée,Décisiondu17août2009
Thefinalawardsonclaims fordamagescomplete theCommission’swork—exceptforadministrati�ematters,dispositionofitsarchi�esandpotentialpost-Awardmatters .
Compensationcanonlybeawardedwhere there is e�idence sufficient in thecircumstancestoestablishtheextentofdamagecausedbyconducttheCommissionpre�iouslyfoundtoha�e�iolatedinternationallaw .TheawardsprobablydonotreflectthetotalityofdamagessufferedbyeitherPartybutratherthedamagesthatcouldbeestablishedwithsufficientcertaintythrougha�ailablee�idenceincomplexinterna-tionallegalproceedingsbetweenPartieswithmodestresourcesandlimitedtime .
E�idenceofphysicaldamage tobuildingsand infrastructure ismorereadilygatheredandpresentedthane�idenceoftheextentof injuries, includingphysical,economicandmoralinjuries,tolargenumbersofindi�iduals .Thereisnosharpdis-tinctionbetweenlossofpropertyanddeathorpersonalinjuryinpoorcountrieswheresecurityofpropertyisoften�italtosur�i�al .Awardsforlossordestructionofpropertyfrequentlystemfromseriousthreatstophysicalintegrity .
Thecompensationclaimsarealmostentirelyfor�iolationsoflawsufferedbytheStatepartyratherthanclaimsonbehalfofitsnationals .Thecompensationawardedreflectstheseriousnessofthose�iolationsandtheireffectsontheClaimantStatePartyratherthanappropriatecompensationforindi�idual�ictims .
On13April2006,theCommissionestablishedasimplified“fast-track”dam-agesphase,in�ol�ingalimitednumberoflegalpleadingsande�idenceaswellasatightscheduleofhearings,tolimitthesignificantfinancialandotherburdensimposeduponbothParties .TheCommissionalsoreiterateditsrecurringconcernthatproceedsaccruingfromthedamagesproceedingsbeusedbythePartiestoassistci�ilian�ictimsoftheconflict .
The Parties’ limited economic capacity is rele�ant in determining damagesclaims .ThereisanintersectionofthelawofStateresponsibilitywithfundamentalhumanrightsnorms .ThefundamentalhumanrightslawruleofcommonArticle1(2)oftheInternationalCo�enantsisapplicabletothePartiesnotwithstandingthedele-tionofthisqualificationbytheInternationalLawCommission(ILC)intheArticlesonStateResponsibility .Thereisnoneedtodecidethequestionofapossiblecapondamages in lightof thePartiesobligationsunderhumanrights lawinthepresentcircumstances .
TheParties’o�eralleconomicpositionisalsorele�anttodeterminingcompensa-tionfor�iolationsofjus in bello.ThepurposeofcompensationpayablebyaresponsibleStateistowipeoutallconsequencesoftheillegalactandreestablishthepreexistingsit-uation(Chorzów FactoryandILCArticlesonStateResponsibility,art .31) .DiplomaticprotectionclaimsbyaStateonbehalfofitsnationalsarebasedoninjurytotheState,
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buttheextentofinjurytoaffectedindi�idualscanplayasignificantroleinassessingtheState’sinjury .Compensationhasalimitedrolewhichisremedial,notpuniti�e .Insituationsin�ol�ingdiplomaticprotection,compensationmustbeassessedinlightofthesocialandeconomiccircumstancesoftheinjuredindi�idualsinrespectofwhomtheStateisclaiming .Compensationdeterminedinaccordancewithinternationallawcannotremedytheworld’seconomicdisparities .
Theinternationallawrulegi�ingbindingeffecttomattersalreadyauthoritati�elydecided(res judicata)hasparticularrele�anceatthisstageoftheproceedings .TheCommission’spre�iousfindingsonclaimsof�iolationsofinternationallawarefinalandbinding,anddefinetheextentofpossibledamages .CompensationcanonlybeawardedforinjurieswhichbearasufficientlyclosecausalconnectionwithconductthattheCommissionpre�iouslyfoundto�iolateinternational law .ThetaskoftheCommissionatthisphaseisnottore�iseorexpanditspriorfindingsonliability,buttoapplythosefindingsindeterminingappropriatecompensation .
TheCommissionrequiredclearandcon�incinge�idencethatdamageoccurred,butlessrigorousproofforpurposesofthequantificationofdamageswhichrequiresexercisesofjudgmentandapproximation .Incommercialarbitration,lackofe�idencemaywarrantdismissalofadamagesclaimforfailureofproof .Incontrast,whenseri-ous �iolations of international law, causing harm to many indi�iduals, ha�e beendetermined,itwouldbeinappropriatetodismisstheclaimoutright .TheCommissionrecognizeditsobligationtodetermineappropriatecompensation,e�eniftheprocessin�ol�esestimationorguessworkwithintherangeofpossibilitiesindicatedbythee�idence .TheCommissionfurthertookintoaccountatrade-offfundamentaltorecentinternationaleffortstoaddressinjuriesaffectinglargenumberof�ictims .Compensa-tionle�elswerethusreduced,balancinguncertaintiesflowingfromthelowerstandardofproof .
Compensationcanonlybeawardedinrespectofdamagesha�ingasufficientcausalconnectionwithconductthat�iolatesinternationallaw .Thenecessarycon-nectioncharacterizedbytheterm“proximatecause”requiresachainofcausationsufficientlycloseinaparticularsituation,takingintoaccountwhethertheparticulardamageshouldha�ebeenreasonablyforeseeabletoanactorcommittingtheinterna-tionaldelictinquestion .
Determiningcompensationinlargeinter-Stateclaimsisnotamechanicalproc-ess .TheCommissionconsideredmultiplefactors,includingthenature,seriousnessandextentofparticularunlawfulacts,whethertheactswereintentional,aswellasanymitigatingorextenuatingcircumstances .Italsoconsideredthenumberofpersonswhowere�ictimsofparticular�iolationsandtheimplicationsfortheirfutureli�es .
TheCommissiondecidednottoawardinterestsincetheclaimsandawardsarebroadlysimilar;interestonthecompensationwouldnotmateriallyaltertheParties’eco-nomicpositions;theamountsawardedinmanycasesreflectestimatesandapproximateswhichmilitatesagainstinterest;andthePartiesha�ebeendiligentandcooperati�ewithnoprejudiceresultingfromdilatoryconduct .
Theconceptofconsequentialdamageshasasignificantroleinsomenationallegalsystems,butdoesnotexistinothers,andsocannotbe�iewedasageneralprincipleoflaw .Internationallawdoesnotrecognizeaseparatecategoryofcompensable“conse-quentialdamages”in�ol�ingdifferentstandardsoflegalcausationorotherdistincti�e
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legalelements .Eritrea’sclaiminthisregardwasthusexaminedinaccordancewiththeprinciplesgenerallyapplicableindeterminingdamagesininternationalclaims .
Generalizedconditionsofwar-relatedeconomicdisruptionanddeclinedonotconstitutecompensableelementsofdamage,e�eninthecaseofsometypesofinjurybearingarelati�elycloseconnectiontoillegalconduct .
Internationalhumanitarianlawaccordsspecialprotectiontomedicalfacilitiesandpersonnel,andci�ilianswhodependonthem .Wheretherearewidespreadunlaw-fuldamagestomedicalfacilities,particularlywheretheyarefewinnumber,itshouldbereasonablyforeseeablethatinjurywillresulttoprotectedpersons .Thecausalcon-nectionthusestablished,theCommissionwasrequiredtoestimatetheextentofinjurytoci�iliansduetolossofaccesstohealthcare,onaccountofdamagetoordestructionofhospitalsandothermedicalfacilities,andlossofmedicalsupplies .
Serious damage to a significant object of cultural patrimony warrants someawardofcompensationgoingbeyondthemerecostofattemptingtorestoretheobjecttoitsearlierappearance .
The2000AgreementestablishedthejurisdictionoftheCommission,butdidnotcreatesubstanti�erights .TheParties’claimsfor�iolationsofinternationallawgener-allyremainsubjecttoanyqualificationsorlimitationsapplicableundercustomaryinternationallaw .TheCommissionrecognizedthecontinuedforceoftheruleofdomi-nantandeffecti�enationalityinmanycircumstances,butheldthatitmustbequalifiedincertainsituations .Article5(9)ofthe2000AgreementisacompellingindicationthatthePartiesdidnot�iewthegeneralrulesofdiplomaticprotectionasapplyingintheunusualcircumstancesthatledtotheAgreement .Itcannotbethat,insuchsitu-ations,internationallawwouldallowaState,ha�ingwrongfullyexpelledpersonsordepri�edthemoftheirnationality,todenyresponsibilitybecauseofthe�erysocialconnectionsorbondsofnationalitythatwereendedbythatsameState .
AsrecognizedbytheInternationalCourtofJusticeintheCorfu Channel case,whereaninjuryisnon-materialandhencenotcompensablebyrestitutionorcom-pensation,theappropriateformofreparationissatisfaction .TheappropriateformofreparationforEthiopia’sseriousbutnon-materialinterferencewithanuncertainnumberofdepartingEritreandiplomatswasthereforefoundtobesatisfactionintheformofadeclarationofwrongfulness .
Lestra�auxdelaCommissionsesontache�ésparlasentencefinalesurlesrécla-mationsdedommages, àl’exceptiondequestionsadministrati�es,desdispositionsrelati�esàsesarchi�esetd’é�entuellesquestionsseposantunefoislasentencepro-noncée .
Uneindemnisationnepeutêtreallouéequedanslecasoùl’étenduedudom-mage,causéparuncomportementpréalablementconsidéréparlaCommissioncom-mecontraireaudroit,aétésuffisammentprou�éeenl’espèce .LessentencesnereflètentassurémentpaslatotalitédesdommagessubisparchacunedesParties,maisplutôtlesdommagesquiontpuêtreétablisa�ecsuffisammentdecertitudeaumoyendespreu�esdisponiblesdanslecadredeprocéduresjudiciairesinternationalescomplexesentrePartiesnedisposantquederessourcesmodestesetdetempslimité .
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Lapreu�edudommagematérielinfligéauxbâtimentsetinfrastructuresestplusaisémentréunieetprésentéequelapreu�edel’étenduedespréjudices,ycompriscor-porels,économiquesetmoraux,subisparungrandnombred’indi�idus . Iln’existepasdedistinctionclaireentrelapertedelapropriétéetledécèsoulepréjudicecorporeldanslespayspau�res,paysdanslesquelslagarantiedelapropriétéestsou�entindis-pensableà lasur�ie . Les indemnisationsaccordéespour laperteou ladestructiond’unepropriétédécoulentfréquemmentdemenacesgra�esàl’encontredel’intégritécorporelle .
Lesréclamationsd’indemnisationrelè�entpourlaplupartde�iolationsdudroitsubiesparl’EtatPartie,plutôtquederéclamationsintroduitesaunomdesesnationaux .L’indemnisationoctroyéereflèteda�antagelecaractèregra�edeces�iolationsainsique leurs effets sur l’EtatPartiedemandeurqu’une indemnisationappropriéedes�ictimesindi�iduelles .
Le13a�ril2006,laCommissionamisenplaceunephasesimplifiéeetaccéléréerelati�eauxdommages, impliquantunnombrelimitédeplaidoiriesetpreu�esainsiqu’unelisterestreinted’auditions,afindelimiterl’importantechargefinancièreetlesautreschargesimposéesauxdeuxParties . LaCommissionaégalementréitérésacon-stantepréoccupationquelesproduitsdécoulantdesprocéduresd’indemnisationsoientutilisésparlesPartiespour�enirenaideaux�ictimesci�ilesduconflit .
La capacité économique limitée des Parties est un élément important àl’é�aluationdesréclamationsdedommages . Ledroitdelaresponsabilitédel’Etatetlesnormesfondamentalesdesdroitsdel’hommeserecoupent .Larègledesdroitsdel’hommefigurantàl’article1(2)communauxPactesinternationauxs’appliqueauxParties,nonobstantlefaitquelaCommissiondudroitinternational(CDI)n’yfaitpasréférencedanssesarticlessurlaresponsabilitédesEtats .Iln’estpasnécessairedeseprononcersurlaquestiondel’é�entualitéd’unplafonnementdesdommagesau�udesobligationsdécoulantdudroitdesdroitsdel’hommedanslescirconstancesdel’espèce .
LasituationéconomiquegénéraledesPartiesestégalementunélémentpertinentàladéterminationdel’indemnisationrelati�eaux�iolationsdujus in bello.Lebutdel’indemnisationexigibled’unEtatresponsableestd’effacertouteslesconséquencesdel’acteillégaletrétablirlasituationpréexistante(Affaire relative à l’usine de ChorzówetArticlesdelaCDIsurlaresponsabilitédesEtats,art .31) . Bienquelesréclamationsdepro-tectiondiplomatiqueintroduitesparunEtataubénéficedesesnationauxsefondentsurledommagecauséàl’Etatmême,l’étenduedupréjudicecauséauxindi�idusaffectéspeutjouerunrôlesignificatifdansl’é�aluationdudommagecauséàl’Etat . L’indemnisationselimiteàunrôlecorrectif,etnonpunitif . Danslessituationsimpliquantlaprotec-tiondiplomatique,l’indemnisationdoitêtreé�aluéed’aprèslescirconstancessocialesetéconomiquesdesindi�iduslésésaunomdesquelsl’Etatréclameuneindemnisation .L’indemnisationdéterminéeen�ertududroitinternationalnepeutremédierauxdis-paritéséconomiquesdecemonde .
Larèglededroitinternationalconférantuneffetcontraignantauxaffairesbéné-ficiantdel’autoritédelachosejugée(res judicata)re�êtuneimportanceparticulièreàcestadedelaprocédure .LesconclusionsantérieuresdelaCommissionsurlesrécla-mationsde�iolationsdudroitinternationalsontdéfiniti�esetcontraignantes,etdéfi-nissentl’étenduedesé�entuelsdommages . Uneindemnisationnepeutêtreattribuée
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quepourlesdommagesprésentantunliendecausalitésuffisammentétroita�eclecomportementquelaCommissionaprécédemmentjugé�iolantledroitinternational . Acestade,latâchedelaCommissionn’estpasdere�oiroud’étendresesprécédentesconclusionssurlaresponsabilité,maisd’appliquercesconclusionsdansladétermina-tiond’uneindemnisationappropriée .
LaCommissionaexigédespreu�esclairesetcon�aincantesdel’occurrencedudommage,maisdespreu�esmoinscontraignantespourcequiestdelaquantificationdudommage,quiappelleàdesexercicesdejugementetapproximation .Danslecadredel’arbitragecommercial,l’absencedepreu�epeutjustifierlerejetd’unedemanded’indemnisationpourfautedepreu�e .Parcontre,lorsquedes�iolationsgra�esdudroitinternational,causantdommageàungrandnombredepersonnes,ontétédéter-minées,ilseraitinappropriédedéboutersansréser�elarequêted’indemnisation .LaCommissionareconnusonobligationdedétermineruneindemnisationcon�enable,mêmesileprocédéimpliqueuneestimation,oumêmeuntra�aildesupposition,dansl’é�entaildescasdefigureindiquésparlapreu�e .LaCommissionaégalementprisencompteuncompromisfondamentalauxrécentseffortsinternationauxdepriseenconsidérationdespréjudicesaffectantungrandnombrede�ictimes .Ainsi,lesni�eauxd’indemnisation ont été réduits, pondérant les incertitudes découlant de critèresd’établissementdespreu�esmoinséle�és .
Uneindemnisationpeutuniquementêtreaccordéepourcequiestdedommagesprésentantunliendecausalitésuffisammentétroita�eclecomportement�iolantledroitinternational . Leliennécessaire,caractériséparlanotionde«causedirecte»,requièreunechaîne decausessuffisammentprochesdansunesituationdonnée, pre-nantenconsidérationsiledommagespécifiqueauraitraisonnablementdûêtrepré�is-iblepourunacteurcommettantledélitinternationalenquestion .
Ladéterminationdel’indemnitédanslecadredelargesréclamationsinteréta-tiques nes’effectuepasparunprocédémécanique .LaCommissionaconsidéréplu-sieursfacteurs,ycomprislanature,lagra�itéetl’étenduedecertainsactesillégaux,l’intentionnalitédecesderniers,ainsiquetoutecirconstanceatténuante .Elleaégale-mentconsidérélenombredepersonnes�ictimesde�iolationsparticulièresetlescon-séquencespourleur�iefuture .
LaCommissionadécidédenepasaccorderd’intérêtétantdonnéquelesréclama-tionsetlesréparationssontlargementsimilaires; unintérêtsurl’indemnitén’altéreraitpasmatériellementlasituationéconomiquedesParties;dansplusieurscas,lessom-mesattribuéesreflètentdesestimationsetapproximationsquimilitentàl’encontred’unintérêt;etlesPartiesontfaitpreu�edediligenceetdecoopérationsanspro�o-queraucunpréjudicerésultantd’uncomportementdilatoire .
Leconceptdedommagesindirectsjoueunrôlesignificatifdanscertainssys-tèmesjuridiquesnationaux,maisn’existepasdansd’autres,etparconséquentnepeutêtreconsidérécommeunprincipegénéraldedroit . Ledroitinternationalnereconnaîtpasunecatégoriedistinctede«dommagesindirects»donnantlieuàindemnisationet impliquantdifférentsni�eauxdecausalitésouautresélémentsjuridiquesdistincts .Ainsi, la réclamationde l’Érythréeàcetégardaétéexaminéeconformémentauxprincipesgénérauxapplicablesàladéterminationdesdommageslorsderéclamationsinternationales .
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ERITREA ETHIOPIA CLAIMS COMMISSION
FINAL AWARD Eritrea’s Damages Claims
between The State of Eritrea
and The Federal Democratic Republic of Ethiopia
BytheClaimsCommission,composedof:
Hans�anHoutte,PresidentGeorgeH .AldrichJohnR .CrookJamesC .N .PaulLucyReed
TheHague,August17,2009
FINAL AWARD––Eritrea’s Damages Claims between the Claimant,
The State of Eritrea, represented by:
Government of EritreaH .E .Mr .MohammedSuliemanAhmed,AmbassadoroftheStateofEri-
treatoTheNetherlandsProfessorLeaBrilmayer,Co-Agent,LegalAd�isortotheOfficeofthe
PresidentofEritrea;HowardM .HoltzmannProfessorofInternationalLaw,YaleLawSchool
Ms .LorraineCharlton,DeputyLegalAd�isortotheOfficeofthePresi-dentofEritrea
Counsel and AdvocatesProfessorJamesR .Crawford,SC,FBA,WhewellProfessorofInterna-
tionalLaw,Uni�ersityofCambridge;MemberoftheAustralianandEnglishBars;MemberoftheInstituteofInternationalLaw
Counsel and ConsultantsMs .HidatBerheMs .AuroraBewicke,Esq .
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Mr .GeoffreyChepigaMs .AnnaEngelmannMs .HelenFisseha,Esq .Ms .HillaryForden,Esq .Ms .JulieFreyMs .ChiaraGiorgetti,Esq .Ms .JenniferHanson,Esq .Mr .JamesHookMs .JohannaKlein-Kranenberg,Esq .Ms .AmandaCostikyanJonesMr .JeffreyJordanMr .YohannesSiumMr .IsaiasYemaneTesfalidet,Esq .Mr .ParkerWise,Esq .
and the Respondent, The Federal Democratic Republic of Ethiopia, represented by:
Government of EthiopiaH .E .AmbassadorFissehaYimer,PermanentRepresentati�eoftheFed-
eralDemocraticRepublicofEthiopiatotheUnitedNations,Gene�aMr .RetaAlemu,FirstSecretary(LegalAd�isor),Coordinator,Claims
Team,MinistryofForeignAffairsoftheFederalDemocraticRepublicofEthi-opia,AddisAbaba
Mr .GirmaKassaye,FirstSecretary,MinistryofForeignAffairsoftheFederalDemocraticRepublicofEthiopia,AddisAbaba
Ms .FirdosaAbdulkadir,ThirdSecretary,MinistryofForeignAffairsoftheFederalDemocraticRepublicofEthiopia,AddisAbaba
Mr .AddisBarega,Attaché,MinistryofForeignAffairsoftheFederalDemocraticRepublicofEthiopia,AddisAbaba
Mr .EphremBezuayhue,Attaché,MinistryofForeignAffairsoftheFed-eralDemocraticRepublicofEthiopia,AddisAbaba
Counsel and ConsultantsMr .B .Dono�anPicard,PicardKentz&RoweLLP,Washington,D .C .;
Memberof theBarof theDistrictofColumbia;Memberof theBarof theSupremeCourtoftheUnitedStates
ProfessorSeanD .Murphy,GeorgeWashingtonUni�ersitySchoolofLaw,Washington,D .C .;MemberoftheStateBarofMaryland
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Mr .EdwardB .Rowe,PicardKentz&RoweLLP,Washington,D .C .;Mem-beroftheBaroftheDistrictofColumbia;MemberoftheStateBarofColo-rado
Mr .ThomasR .Snider,Dewey&LeBoeufLLP,Washington,D .C .;Mem-beroftheBaroftheDistrictofColumbia;MemberoftheStateBarofMas-sachusetts
Mr .WonKidane,Pennsyl�aniaStateUni�ersityDickinsonSchoolofLaw,Uni�ersityPark,Pennsyl�ania;MemberoftheBaroftheDistrictofColumbia;MemberoftheStateBarofIllinois
Mr .Da�idG .McConkie,Washington,D .C .,ConsultantMr .BijanGanji,Washington,D .C .,ConsultantMr .BrianBurnor,Washington,D .C .,InformationTechnologyConsultantMs . Donna Edmonds, Picard Kentz & Rowe LLP, Washington, D .C .,
CoordinatorMs .LeylaMyers,Hunton&WilliamsLLP,Washington,D .C .,Profes-
sionalAssistantMs .ElizabethRghebi,Dewey&LeBoeufLLP,Washington,D .C .,Profes-
sionalAssistant
Table of ConTenTs
I . INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 516
II . PROCEDURALASPECTSOFTHEDAMAGESPHASE . . . . . . . 518
III . THEPARTIES’SITUATIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 521
IV . APPLICABLELEGALPRINCIPLES . . . . . . . . . . . . . . . . . . . . . . . . 525
A . Res Judicata . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 525
B . E�idenceandtheBurdenofProofattheDamagesPhase . . . . . 527
C . Causation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 529
V . ASSESSINGCOMPENSATIONANDTECHNICALFINAN-CIALISSUES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 530
A . CurrencyCon�ersion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 530
B . Interest . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 531
C . OtherTechnicalIssues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 532
VI . ERITREA’SGROUPNUMBERONEDAMAGESCLAIMS . . . . . 532
A . TheCommission’sLiabilityFindings . . . . . . . . . . . . . . . . . . . . . . 532
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B . LossofPersonalandBusinessProperty . . . . . . . . . . . . . . . . . . . . 534C . DamagetoorDestructionofBuildings . . . . . . . . . . . . . . . . . . . . 540D . ClaimforConsequentialDamages . . . . . . . . . . . . . . . . . . . . . . . . 573E . DamagetoCulturalProperty . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 579F . PrisonersofWar . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 580G . Rape . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 582H . DisplacementofthePopulationofAwgaro . . . . . . . . . . . . . . . . . 584
VII .ERITREA’SGROUPNUMBERTWODAMAGESCLAIMS . . . . 586
A . TheCommission’sLiabilityFindings . . . . . . . . . . . . . . . . . . . . . . 586B . Non-Responsibility for Claims of Nationals; Dominant and
Effecti�eNationality . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 586C . Depri�ationofNationality . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 587D . WrongfulExpulsion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 595E . HarshConditionsofDeparture . . . . . . . . . . . . . . . . . . . . . . . . . . . 599F . PropertyLossesByPersonsPre�iouslyResidinginEthiopia . . . . 601G . PropertyLossesByNon-Residents . . . . . . . . . . . . . . . . . . . . . . . . 608H . OtherNon-ResidentProperty . . . . . . . . . . . . . . . . . . . . . . . . . . . . 614I . UnlawfulDetentionofEritreanCi�ilians . . . . . . . . . . . . . . . . . . . 614J . DiplomaticClaim . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 617
VIII .INDIVIDUALCLAIMS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 621
A . Claims27and28,HiwotNemariamandBelayRedda . . . . . . . . 622B . Claim29,SertzuGebreMeskel . . . . . . . . . . . . . . . . . . . . . . . . . . . 624C . Claim30,FekaduAndemeskal . . . . . . . . . . . . . . . . . . . . . . . . . . . 625D . Claim31,MebrahtuGebremedhin . . . . . . . . . . . . . . . . . . . . . . . . 627E . Claim32,MebratGebreamlak . . . . . . . . . . . . . . . . . . . . . . . . . . . . 627
IX . AWARD . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 629
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i. inTroduCTion1 . WiththisFinalAwardinEritrea’sclaimsfordamages,anditscom-
panionFinalAwardinEthiopia’sdamagesclaims,theEritrea-EthiopiaClaimsCommission largely completes its work .1 The Commission appreciates thecooperationithasrecei�edfrombothPartiesandtheircounselthroughoutthedamagesphaseoftheseproceedings,asintheearlierliabilityphase .Ne�-ertheless,thisphasehasin�ol�edenormouschallenges .Throughtheircounsel,theStatesofEritreaandEthiopiaha�esoughttoquantifytheextentofdamageresultingfrom�iolationsofinternationallawpre�iouslyfoundbytheCom-mission .Asdiscussedbelow,theCommissionhassoughttoapplyproceduresandstandardsofe�idence that takeaccountof thechallenges facingbothParties .Ne�ertheless, theseare legalproceedings .TheCommission’sfind-ingsmustrestone�idence .AstheCommissionhasemphasizedthroughout,compensationcanonlybeawardedwherethereise�idencesufficientinthecircumstancestoestablishtheextentofdamagecausedbyconducttheCom-missionpre�iouslyfoundtoha�e�iolatedinternationallaw .2
2 . Accordingly,theCommissionnotesthatitsawardsofmonetarycom-pensationfordamagesareless—probablymuchless—thanthePartiesbelie�etobedue .TheCommissionthusstandsinthetraditionofmanyotherpastclaimscommissionsthatha�eawardedonlyafractionofthetotalamountsclaimed .3ItsawardsprobablydonotreflectthetotalityofdamagesthateitherPartysufferedin�iolationofinternationallaw .Instead,theyreflectthedam-agesthatcouldbeestablishedwithsufficientcertaintythroughthea�ailablee�idence,inthecontextofcomplexinternationallegalproceedingscarriedoutbythePartieswithmodestresourcesandundernecessarypressuresoftime .
3 . Inthatconnection,theCommissionnotesthate�idenceoftheextentofphysicaldamagetobuildingsandinfrastructureismorereadilygatheredandpresentedthanise�idenceoftheextentofinjuries,includingphysical,economicandmoralinjuries,tolargenumbersofindi�iduals .Thatfactmaywellha�eledtothelesserextentofe�idencethatoftenwasofferedinsupportofclaimsbasedoninjuriestoindi�iduals .Moreo�er,astheclaimsaddressedinthisAwardarealmostentirelyclaimsbytheStatePartyforcompensationfor�iolationsoflawthatithassuffered,ratherthanclaimsonbehalfofitsnationals,theCommissionhasbeencompelledtomakejudgmentsnotastoappropriatecompensationforindi�idual�ictims,butinsteadastotherelati�e
1 Variousadministrati�ematters,includingthefinaldispositionoftheCommissionArchi�e,aswellasanypost-AwardmatterspotentiallyarisingundertheCommission’sRulesofProcedure,remaintobecompleted .
2 See Eritrea-EthiopiaClaimsCommissionDecisionNo .4(“E�idence”)(July24,2001)(“ThePartiesareremindedthatunderArticle5(13)oftheAgreementofDecem-ber12,2000,theCommissionisboundtoapplytherele�antrulesofinternationallawandcannotmakedecisionsex aequo et bono.TherulesthattheCommissionmustapplyincludethoserelatingtotheneedfore�idencetopro�eordispro�edisputedfacts .”)
3 ManleyO .Hudson,InternationalTribunalsp .197(1944) .
partxvii—FinalAWARD eritrea’sdamagesclaims 517
seriousnessofthose�iolationsoflawandtheeffectstheyhadontheClaimantStateParty .
4 . TheCommission’sAwardspro�idecompensationinrespectofclaimsbothforlossesofpropertyandfordeathsand�ariousformsofpersonalinjury .Howe�er,itwouldbewrongtodrawasharpdistinctionbetweenthetwotypesofclaims .InpoorcountrieslikeEritreaandEthiopia,withlowincomesandlifeexpectancies,securityofpropertyoftenis�italtosur�i�al .Propertysuchasli�estock,farmers’tools,utensilsandhouseshasadirectimpactonone’spossibilitytosur�i�e .Thus,awardsofcompensationforlossordestructionofpropertyfrequentlystemfromseriousthreatstophysicalintegrity .
5 . AsdescribedinitsearlierPartialAwards,thisCommissionwascre-atedbyArticle5oftheAgreementbetweentheGo�ernmentoftheFederalDemocraticRepublicofEthiopiaandtheGo�ernmentoftheStateofEritreaofDecember12,2000(“theAgreement”or“December2000Agreement”) .4TheAgreementwasawide-rangingdocumentconcludedbytheParties tobring about a comprehensi�e settlement of the May 1998-June 2000 warbetweenthem .UnderArticle5(1),“[t]hemandateoftheCommissionistodecidethroughbindingarbitrationallclaimsforloss,damageorinjurybyoneGo�ernmentagainsttheother”relatedtothe1998–2000conflictthat“resultfrom�iolationsofinternationalhumanitarianlaw,includingthe1949Gene�aCon�entions,orother�iolationsofinternationallaw .”
6 . Beginningin2001,andcontinuingthroughouttheproceedings,theCommissionengagedinextensi�econsultationswiththeParties .Followingsuchconsultations, itdecidedatanearlystagefirsttodecidethemeritsoftheParties’ liabilityclaims .Then, if liabilitywereestablishedandthePar-ties,oreitherofthem,wishedtodoso,theCommissionwouldholdfurtherproceedingsregardingtheamountofdamages .Accordingly,theCommissionheldfourroundsofhearingsonthemeritsofbothParties’claimsbetweenNo�ember2002andApril2005 .BetweenJuly1,2003andDecember19,2005,itissuedfourgroupsofPartialandFinalAwardsaddressingclaimsofbothParties .TheCommissionrenderedthefollowingAwardsonEritrea’sclaims: – PrisonersofWar(Eritrea’sClaim17)(PartialAward,July1,2003); – CentralFront(Eritrea’sClaims2,4,6,7,8&22)(PartialAward,
April28,2004); – Ci�iliansClaims(Eritrea’sClaims15,16,23&27–32)(Partial
Award,December17,2004);
4 TheCommission’spre�iousworkisdescribedinitsAwards,a�ailableontheweb-siteofthePermanentCourtofArbitration,www .pca-cpa .org .Throughoutthisprocess,theSecretary-Generalandstaffof thePermanentCourtofArbitrationha�epro�idedhighlyprofessionalandefficientsupportfortheCommission,whichrecordsitssincereappreciationforallthathasbeendoneonitsbehalf .TheCommissionexpressesparticularthankstoMs .BelindaMacmahon,whohasser�edasitsRegistrarsince2004withunstint-ingefficiencyandprofessionalism .
518 ERITREA/ETHIOPIA
– WesternFront,AerialBombardmentandRelatedClaims(Eritrea’sClaims1,3,5,9–13,14,21,25&26)(PartialAward,December19,2005);
– Pensions(Eritrea’sClaims15,19&23)(FinalAward,December19,2005);
– LossofPropertyinEthiopiaOwnedbyNon-Residents(Eritrea’sClaim24)(PartialAward,December19,2005);and
– DiplomaticClaim(Eritrea’sClaim20)(PartialAward,December19,2005) .
7 . TheCommission’s liabilityfindingsonEritrea’s claimsare repro-ducedatrele�antpointsinthetextbelow .TheAwardslistedabo�eresol�edtheextentofEthiopia’sliabilitywithrespecttoallofEritrea’sclaims .TheamountsofcompensationappropriateforthemaredecidedinthisAward .
ii. ProCedural asPeCTs of THe damaGes PHase8 . Beginninginthesummerof2005,theCommissionandtheParties
consultedfurther,utilizingcorrespondence,conferencecallsandaninformalmeeting,regardingthepossibilityoffurtherproceedingsfollowingcompletionofthemeritsoftheParties’claims .WhilethePartiesindicatedthattheydidnotwanttheproceedingstoendfollowingtheAwardsonliability,thesecon-sultationshighlightedafundamentalchallenge .Adamagesphasein�ol�ingpreciseassessmentoftheextentofinjuriesallegedlysufferedbylargenumbersofpersons,entitiesandgo�ernmentbodieswouldrequireyearsofadditionaldifficult,burdensomeandexpensi�eproceedings .
9 . ThePartieschosetoproceeddespiteconcernsairedbytheCommis-sion .Amongotherpossibilities,thePartiesandtheCommissiondiscussedaproposalbyEthiopiathat,inlieuoffurtherlegalproceedingsondamages,theCommissionshouldbecon�ertedintoamechanismworkingtoincreasetheflowofreliefandde�elopmentfundsfrominternationaldonorstoalle�iatetheconsequencesofthewarinbothcountries .Eritreaexpressedseriousreser�a-tionsregardingthisproposal .TheCommissionalso�ieweditasunlikelytobeproducti�einthecircumstances,asitcameatthecompensationphaseoftheproceedings,followingformalfindingsofliabilityagainstbothPartiesfor�iolationsofinternationallaw .IntheabsenceofagreementbytheParties,thisproposaltochangetheCommission’smandatewasnotpursued,anditwasnotpossibletoterminatetheproceedingswithoutadamagesphase .
10 . AstheCommissionconsideredoptionsforproceedingstoassessdamages,ittookaccountofitsresponsibilitiesunderArticle5(12)oftheAgree-ment,requiringtheCommissiontoendea�ortocompleteitsworkwithinthreeyearsofthefilingoftheParties’claims,thatis,byDecember2004 .(ThiswasextendedinFebruary2003inresponsetobothParties’requestsforadditionaltime .)TheCommissionwasalsomindfulofthecomplexityandcostofthe
partxvii—FinalAWARD eritrea’sdamagesclaims 519
proceedingstodate,andofthesignificantfinancialandotherburdenstheyimposeduponbothParties .5Followingcarefulconsideration, inanOrderdatedApril13,2006,theCommissiondirectedthePartiestoproceedwithasimplified“fast-track”damagesphase,in�ol�ingalimitednumberoffilingsoflegalpleadingsande�idence,andatightscheduleofhearings .ThisOrderindicatedtheCommission’srecurringconcernthatproceedsaccruingfromthedamagesproceedingsbeusedbythePartiestoassistci�ilian�ictimsoftheconflict .
11 . BecauseofthesignificanceoftheApril13,2006Ordertothesubse-quentproceedings,itsoperati�eportionsaresetouthere:
1 .Inordertopermittheearliestpossibleassistancetoindi�idualswhoha�esufferedinjuryorlossandtoreducethecostoftheproceedings,theCom-missionwillseektocompletethedamagesphasebeforetheendof2008 .In�iewofthehumanitarianpurposessetforthinArticle5(1)oftheDecember12Agreement,theCommissionrequeststhatthePartiesinformitintheirfirstfilingshowtheyintendtoensuredistributionofdamagesrecei�edtoci�ilian�ictims,includingpresentlya�ailableinformationonexistingoranticipatedstructuresandproceduresforthispurpose .
2 .TheCommissionwelcomesthefactthatthePartiesareingeneralagree-mentonaconsiderablenumberoftheissuestheyha�ediscussed .
3 .TheCommissionrecognizesthatthereareafewlegalissues,suchasthescope of damages for breach of the jus ad bellum, that could usefully beaddressedaspreliminaryissuestobedecidedpriortothefilingofbriefsonanycategoryofclaimeddamages .Howe�er,theCommissionhasdecidedthattheadditionalmonthsrequiredforseparateproceedingstohearanddecidethosepreliminary issueswouldundulyextend the timerequired tocom-pletetheCommission’sworkondamages .Consequently,theCommissionhasdecidedthatallsuchissuesshouldbebriefedaspartofthefirstgroupofclaimeddamages .
4 .Again,forreasonsofexpeditiousresolutionofallclaimeddamages,theCommissionhasdecidedtodi�idetheclaimeddamagesintotwogroupsonly .GroupNumber1includestheWarFrontClaims,thePrisonerofWarClaims,theDisplacedPersonsClaimsandthepreliminaryissuesthePar-tiesmayraise,includingthescopeofdamagesforbreachofthejus ad bel-lum,whichisanelementofallofEthiopia’sclaims .Thus,GroupNumber1comprisesEritrea’sClaims1,3,4,5,7,9,13,17,21and22,Ethiopia’sClaims1,2,3and4,aswellasanypreliminaryissuesraisedbyeitherParty .GroupNumber2iscomposedofallremainingclaims,includingtheCi�iliansorHomeFrontclaims .Thus,GroupNumber2comprisesEritrea’sClaims15,
5 Allof thecostsof theseproceedings, includingthecostsofbothParties’ legalteams,ha�ebeenbornebythePartiesthemsel�es .TheCommissionhassoughttolimititsowncostsbyminimizingtra�elandPCAsupport,bymakingextensi�euseoftheInternet,andthroughothermeasures .Ne�ertheless,itismindfulthattheproceedingsha�ebeenafinancialburdenforbothParties .
520 ERITREA/ETHIOPIA
16,20,23,24,27,28,29,30,31and32andEthiopia’sClaims5,6(jus ad bel-lum aspectsonly),7and8 .
5 . The Parties shall file their briefs and supporting e�idence on GroupNumber1ClaimsbyNo�ember15,2006andtheirreplybriefsande�idencebyFebruary15,2007 .ThePartiesmayfileanyadditionaldocumentsande�idence,togetherwithabrief(nottoexceed10pages)explanationoftherele�anceoftheadditionalmaterialfiled,atleast21dayspriortotheHear-ing .TheHearingwilltakeplaceontheGroup1ClaimsassoonaspossibleafterApril15,2007,ondatestobesetfollowingconsultationsbetweentheCommissionandtheParties .TheCommissiondoesnoten�isageauthor-izingadditionalpleadingsorextendingthesefilingdeadlines .
6 .AsimilarschedulewillbeestablishedforGroupNumber2Claimsfollow-ingtheHearingonGroupNumber1Claims .
7 .AsinglefinalAwardwillbeissuedonallClaimsfollowingthesecondHearing .Ne�ertheless,theCommissionwillissueguidanceonpreliminaryissuesandonotherissuesasappropriate,followingtheHearingonGroupNumber1Claims, inorder toassist theParties inpreparing theGroupNumber2Claims .
8 .TheCommissionintendstoconsultcloselywiththePartiesregardingimplementationofthisOrderthroughthePresident’sconferencecallswiththePartiesandothermeans,andmaycreateaWorkingGroupforthispur-pose .Themodalitiesandscheduleinthisregardwillbeestablishedfollow-ingconsultationsbetweentheCommissionandtheParties .
12 . Asen�isioned in thisOrder, theCommissioncreatedaworkinggroupof threemembers (CommissionersCrook,PaulandReed)whometinformallywiththeParties’representati�esonJuly29,2006regardingpro-ceduralquestions .Atthatmeeting,thePartiesbothaskedtodefertoalaterstagecertainissuestheycharacterizedasin�ol�ingtechnical,financialandaccountingmatters .Asrequested,onAugust16,2006theCommissionissuedthefollowinginstruction:
TakingaccountoftherecentdiscussionsbetweentheCommissionandtheParties,thefollowingmatterswillnotbeaddressedattheApril2007hear-ingandshouldnotbeaddressedintheParties’writtensubmissionspriortothathearing:
(a) Effectofthirdpartydonationsforreplacementorrebuilding:thelegaleffecttobegi�entothirdpartypayments(includinggrants,loans,andinsurancepayments) tocompensate fordamage illegallycausedduringthewar .
(b) Technicalfinancialquestions .Thiscategorymightincludechoos-inganapproachtowardcurrencycon�ersion,thelegaleffect(ifany)ofinflation,interestcalculations,etc .
(c) Attorney’s fees (whether they were to be allowed, disallowed,capped,nettedout,etc .)
partxvii—FinalAWARD eritrea’sdamagesclaims 521
Asappropriate,theCommissionwillpro�ideguidanceregardingthehan-dlingofthesemattersatalatertime .13 . TheGroupNumberOnedamagesproceedingstookplaceasspeci-
fiedintheCommission’sApril13,2006Order .HearingsontheGroupNumberOnedamagesclaimswereheldatthePeacePalacefromApril16to27,2007 .OnApril28,2007,theCommissionmetinformallywithcounselforthePar-ties,andofferedinformalguidanceintendedtoassistinpreparationoftheirGroupNumberTwodamagesclaims .
14 . OnJuly27,2007, theCommissionpro�idedfurtherguidancebymeansofDecisionNumber7(“GuidanceRegardingJus Ad Bellum Liability”)andDecisionNumber8(“RelieftoWarVictims”) .
15 . OnMay16,2007,theCommissionsettheschedulefortheGroupNumberTwodamagesclaims,culminatinginhearingsheldatthePeacePal-ace fromMay19 toMay27,2008 .After thosehearings,onMay28,2008,theCommissionagainmetinformallywithcounselforthePartiestodiscussremainingprocedural issues .ThePartiesaddressedall thedeferred issuesnotedinparagraph12abo�einwrittenororalsubmissions .
16 . TheCommissionwaskeenlyawarethattheexpeditedproceduresestablishedforthetwogroupsofdamagesclaimswouldputgreatpressureonthePartiesandtheircounsel .ItalsorecognizedthattheParties’prepara-tionandpresentationoftheirclaims,anditsownassessmentofthoseclaims,wouldlikelybelessinformedandprecisethanmightbepossiblefollowinglonger,moreelaborate,andmoreexpensi�eproceedings .Ne�ertheless, theCommissionbelie�edthattheseprocedureswereappropriateinthecircum-stances,gi�entheParties’situationsandtheCommission’sobligationtocom-pleteitstaskwithinareasonablyshortperiod,asindicatedintheDecember2000Agreement .
17 . TheCommissionispleasedtorecordthatbothPartiesdidwhatwasaskedofthem .Allpleadingswerefiledontime,andbothsetsofhearingswereconductedinaprofessionalandefficientmanner .Notwithstandingthegreatdifficultiestheyfaced,bothParties’legalteamscarriedouttheGroupNumberOneandGroupNumberTwodamagesproceedings,likepre�iousCommissionproceedings,with�igorandinfullcooperationwiththeCom-mission .TheCommissionrecordsitsappreciationtobothPartiesandtheirlegalteamsfortheircontinuedgoodwillandcooperationinthisfinalstageofitswork .
iii. THe ParTies’ siTuaTions18 . InassessingbothParties’damagesclaims,theCommissionhas
beenmindfuloftheharshfactthatthesecountriesareamongthepoorestonearth .Inbothroundsofdamagesproceedings,bothPartiessoughtamountsthatwerehuge,bothabsolutelyandinrelationtotheeconomiccapacityof
522 ERITREA/ETHIOPIA
thecountryagainstwhichtheyweredirected .EthiopiacalculateditsGroupNumberOnedamagesclaimsagainstEritreatoequalnearly7 .4billionU .S .dollarsanditsGroupNumberTwodamagesclaimstoequalapproximately6 .9billionU .S .dollars .TheseamountsaremorethanthreetimesEritrea’sestimatedtotalnationalproductin2005,measuredonapurchasingpowerparitybasis .6Eritrea’sclaimsagainstEthiopia,whilelessdramaticinrelationtoEthiopia’slargersizeandeconomy,approached6billionU .S .dollars .
19 . ThesizeoftheParties’claimsraisedpotentiallyseriousquestionsin�ol�ingtheintersectionofthelawofStateresponsibilitywithfundamentalhumanrightsnorms .BothEritreaandEthiopiaarepartiestotheInterna-tionalCo�enantonEconomic,SocialandCulturalRights(“ICESCR”)7andtheInternationalCo�enantonCi�ilandPoliticalRights .8BothCo�enantspro�ideinArticleI(2)that“[i]nnocasemayapeoplebedepri�edofitsownmeansofsubsistence .”Duringthehearings,itwasnotedthatearlydraftsoftheInternationalLawCommission’s(“ILC”)DraftArticlesonStateResponsibil-ityincludedthisqualification,butthatitwasnotretainedintheArticlesasadopted .Thatdoesnotalterthefundamentalhumanrightslawruleofcom-monArticleI(2),whichunquestionablyappliestotheParties .
20 . Similarly,Article2(1)oftheICESCRobligesbothPartiestotakestepstoachie�ethe“fullrealization”ofrightsrecognizedbythatinstrument .TheCommissionismindfulthatinitsGeneralComments,theCommitteeonEconomic,SocialandCulturalRightshasidentifiedarangeofstepstobetakenbyStateswherenecessary,inter alia,toimpro�eaccesstohealthcare,education(particularlyforgirls)andresourcestoimpro�etheconditionsofsubsistence .TheseGeneralCommentsha�ebeenendorsedandtakenasguidestoactionbymanyinterestedobser�ersandtheUnitedNations’de�elopment
6 See HumanDe�elopmentReport2007/2008(UnitedNationsDe�elopmentPro-gramme),available at www .undp .org .TheReportincludesanindexofhumande�elop-menttrends(“HumanDe�elopmentIndex”)inallcountries .The“indicators”measure,forexample,“publicspending,”“commitments” torealize the“right toeducation,”orimpro�ementsinthe“standardofli�ingmeasuredbythePPP[purchasingpowerpar-ity] .”Eachcountryisrankedinaccordancewithaprocessthatcombinestheseandotherindices .
7 InternationalCo�enantonEconomic,SocialandCulturalRights,Dec .16,1966,993U .N .T .S .p .3 .
8 InternationalCo�enantonCi�ilandPoliticalRights,Dec .16,1966,999U .N .T .S .p .171 .
partxvii—FinalAWARD eritrea’sdamagesclaims 523
agencies .9Suchmeasuresareparticularlyrele�anttotheneedsoftheruralpoorincountrieslikeEritreaandEthiopia .Thesemattersareconsideredfur-therintheCommission’sDecisionNumber7,10andinitsdiscussionofcom-pensationowedtoEthiopiaforEritrea’s�iolationofthejus ad bellum inthecompanionFinalAwardinEthiopia’sdamagesclaim .
21 . Awardsofcompensationof themagnitudesoughtbyeachPartywouldimposecripplingburdensupontheeconomiesandpopulationsoftheother,notwithstandingtheobligationsbothha�eacceptedundertheCo�e-nants .EthiopiaurgedtheCommissionnottobeconcernedwiththeimpactof�erylargead�erseawardsontheaffectedcountry’spopulation,becausetheobligationtopaywouldfallonthego�ernment,notthepeople .TheCom-missiondoesnotagree .Hugeawardsofcompensationbytheirnaturewouldrequirelargedi�ersionsofnationalresourcesfromthepayingcountry—anditscitizensneedinghealthcare,educationandotherpublicser�ices—totherecipientcountry .Inthisregard,thepre�ailingpracticeofStatesintheyearssincetheTreatyofVersailleshasbeentogi�e�erysignificantweighttotheneedsoftheaffectedpopulationindeterminingamountssoughtaspost-warreparations .11
22 . Article5(13)oftheDecember2000Agreementdirectsthat,“[i]nconsideringclaims,theCommissionshallapplyrele�antrulesofinterna-
9 UnitedNationsCommitteeonEconomic,SocialandCulturalRights,GeneralCommentNo .3,TheNatureofStatesPartiesObligationsunderArt .2(1)oftheInterna-tionalCo�enantonEconomic,SocialandCulturalRights[ICESCR],U .N .Doc .E/1991/23,AnnexIII,atp .86(1991) .AnumberofsubsequentGeneralCommentsspellouttheobliga-tionsofStatesPartiestoachie�e“progressi�erealization”oftheparticularrightsguaran-teedbyotherarticlesoftheICESCR,suchas“therighttoeducation .”AllofthesecanbefoundinTheCompilationofGeneralCommentsAdoptedbyHumanRightsTreatyBod-ies,U .N .Doc .HRI/GEN/1/Re� .9(2006) .ExamplesoftheseGeneralCommentsincludeGeneralCommentNo .16,Theequalrightofmenandwomentotheenjoymentofalleconomic,socialandculturalrights(ICESCR,art .3);GeneralCommentNo .15,Therighttowater;GeneralCommentNo .14,Theright to thehigheststandardofhealth(ICE-SCR,art .12);andGeneralCommentNo .13,Therighttoeducation(ICESCR,art .13) .See also MAGDALENASEPULVEDA,THENATUREOFTHEOBLIGATIONSUNDERTHEINTERNATIONALCOVENANTONECONOMIC,SOCIALANDCULTURALRIGHTS(2003);COREOBLIGATIONS:BUILDINGAFRAMEWORKFORECONOMIC,SOCIALANDCULTURALRIGHTS(AudreyChapman&SageRusselleds .,2002);MAT-THEWCRAVEN,THEINTERNATIONALCOVENANTONECONOMIC,SOCIALANDCULTURALRIGHTS:APERSPECTIVEONITSDEVELOPMENT(IanBrownlieed .,1995);JudithV .Welling,International Indicators and Economic, Social, and Cultural Rights,30(4)HUM .RTS .Q .p .933(2008) .TheSecretary-GeneralurgedallUNde�elop-mentagenciestoadoptacommon“HumanRightsBasedApproach”totheirde�elopmentmissionsand,workingtogether,commonrights-focusedcountryplans .See StrengtheningoftheUnitedNations:AnAgendaforFurtherChange,ReportoftheSecretary-General,U .N .GAOR,57thSess .,U .N .Doc .A/57/387(2002) .
10 Eritrea-EthiopiaClaimsCommissionDecisionNo .7(“GuidanceRegardingJus ad Bellum Liability”)(July27,2007) .
11 Id.,pp .6–7 .
524 ERITREA/ETHIOPIA
tionallaw,”whichincluderulesofhumanrightslawapplicableasbetweentheParties .Accordingly,theCommissioncouldnotdisregardthepossibil-itythatlargedamagesawardsmightexceedthecapacityoftheresponsibleStatetopayorresultinseriousinjurytoitspopulationifsuchdamageswerepaid .12Itthusconsideredwhetheritwasnecessarytolimititscom-pensationawards insomemanner toensure that theultimate financialburdenimposedonaPartywouldnotbesoexcessi�e,gi�enitseconomicconditionanditscapacitytopay,astocompromiseitsabilitytomeetitspeople’sbasicneeds .
23 . Inthecircumstances,theCommissionconcludedthatitneednotdecidethequestionofpossiblecappingoftheawardinlightoftheParties’obligationsunderhumanrightslaw .
24 . TheParties’o�eralleconomicpositionsarerele�anttodetermin-ingcompensationinanothermanneraswell .InconsideringbothParties’claimsfor�iolationofthejus in bello,theCommissionhasbeenmindfuloftheprinciple,setoutbythePermanentCourtofInternationalJusticeinChorzów Factory,thatthepurposeofcompensationpayablebyaresponsi-bleStateis“toseektowipeoutalltheconsequencesoftheillegalactandreestablishthesituationwhichwould,inallprobability,ha�eexistedifthatacthadnotbeencommitted .13ThisnotionunderliesArticle31oftheILC’sArticlesonStateResponsibility,that“[t]heresponsibleStateisunderanobli-gationtomakefullreparationfortheinjurycausedbytheinternationallywrongfulact .”
25 . Chorzów Factory offersanimportantreferencepointforassessingbothParties’compensationclaims .Forreasonsthatarereadilyunderstand-able,gi�enlimitsoftimeandresources,bothPartiesfiledtheirclaimsasinter-Stateclaims .AlthoughEritreafiledclaimsonbehalfofsixindi�iduals,neitherPartyutilizedtheoption,a�ailableunderArticle5(8)oftheAgree-mentandtheCommission’sRulesofProcedure,ofpresentingclaimsdirectlyonbehalfoflargenumbersofindi�iduals .Ne�ertheless,someofbothStates’claimsaremadeintheexerciseofdiplomaticprotection, inthattheyarepredicated upon injuries allegedly suffered by numbers of the Claimant
12 See WilliamW .Bishop,General Course of Public International Law, 1965,in IlRecueildesCours,Tome115p .403(1965);RichardFalk,Reparations, International Law, and Global Justice,in TheHandbookofReparationsp .492(PablodeGreiffed .,2006);ChristianTomuschat,Reparations in Favour of Individual Victims of Gross Vio-lations of Human Rights and International Humanitarian Law,in PromotingJustice,HumanRightsandConflictResolutionThroughInternationalLaw/La Promo-tion de la justice, des droits de l’homme et du reglement des conflits par le droit international,LiberAmicorumLuciusCaflischp .569,atpp .581et seq.(MarceloG .Kohened .,2007) .
13 FactoryatChorzów,Merits,1928P .C .I .J .(Ser .A .)No .17,p .47 .
partxvii—FinalAWARD eritrea’sdamagesclaims 525
State’snationals .14WhiletheinjuryinsuchcasesisinjurytotheState,theextentofinjurytoaffectedindi�iduals—insofarasitcanbequantified—canplayasignificantrole inassessingtheState’s injury . Inthisregard, in itsDecisionNumber815andelsewhereinthisFinalAward,theCommissionhasencouragedthePartiestoconsiderhow,intheexerciseoftheirdiscretion,compensationcanbestbeusedtoaccomplishthehumanitarianobjecti�esofArticle5(1)oftheAgreement .
26 . Chorzów Factory teachesthatcompensationhasalimitedfunction .Itsroleistorestoreaninjuredparty,insofaraspossible,tothepositionitwouldha�eoccupiedbutfortheinjury .Thisfunctionisremedial,notpuni-ti�e .Accordingly,insituationsin�ol�ingdiplomaticprotection,compensationmustbeassessed in lightof theactualsocialandeconomiccircumstancesoftheinjuredindi�idualsinrespectofwhomtheStateisclaiming .Thedif-ficulteconomicconditionsfoundintheaffectedareasofEritreaandEthiopiamustbetakenintoaccountinassessingcompensationthere .Compensationdeterminedinaccordancewithinternationallawcannotremedytheworld’seconomicdisparities .
27 . BothPartiesrecognizedthis,andgenerallyframedtheirclaimsinwaysthat,inthefirstinstanceatleast,tookaccountofthelowincomesandlimitedpropertyofmostofthoseaffectedbythewar .
iV. aPPliCable leGal PrinCiPles28 . UnderArticle5(13)oftheAgreement,theCommissionmust“apply
rele�antrulesofinternationallaw”and“shallnotha�ethepowertomakedeci-sionsex aequo et bono.”Thefollowingsectionsconsiderthreeelementsofgen-eralinternationallawaffectingtheseproceedings:(a)thepreclusi�eeffectoftheCommission’searlierdecisionsonliability(res judicata);(b)theroleofe�idenceandtheburdenofproof;and(c)therequirementofalegallysufficientconnec-tionbetweenwrongfulconductandinjuryforwhichdamageisclaimed .
a. Res Judicata29 . Theinternationallawrulegi�ingbindingeffecttomattersalready
authoritati�elydecided(res judicata)hasparticularrele�anceatthisstageoftheproceedings . In itsearlierPartialAwards, theCommission foundthat
14 UnderArticle5(9)oftheAgreement,“[i]nappropriatecases,eachpartymayfileclaimsonbehalfofpersonsofEthiopianorEritreanoriginwhomaynotbeitsnationals .SuchclaimsshallbeconsideredbytheCommissiononthesamebasisasclaimssubmittedonbehalfofthatparty’snationals .”Thisunusualpro�isionwasnotutilized .WhileEritreasoughttobringclaimspredicateduponinjuriestoEthiopiannationals,itdidsoonbehalfoftheStateofEritrea,andnotonbehalfoftheinjuredindi�iduals .
15 Eritrea-EthiopiaClaimsCommissionDecisionNo .8(“RelieftoWarVictims”)(July27,2007) .
526 ERITREA/ETHIOPIA
someclaimsof�iolationsofapplicableinternationallawhadbeenpro�ed,anditdismissedotherclaims .Thesefindingsarefinalandbinding,anddefinetheextentofpossibledamages . It isnotpossibleat thisstage tore-litigateclaimsthattheCommissionhasdecided,ortopresentnewones .Compensa-tioncanonlybeawardedforinjuriesnowifthoseinjuriesbearasufficientlyclosecausalconnectionwithconductthattheCommissionpre�iouslyfoundto�iolateinternationallaw .
30 . TheCommission’saffirmati�efindingsofliabilityaresetoutinthedispositifs attheendofeachPartialAward .Whilesomeargumentaboutthescopeandmeaningofthosefindingsisine�itableinthecontextofabifur-catedproceeding,bothPartiesha�esometimessoughttolimittheirpotentialliability(ortobroadentheother’s liability)byconstruingthedispositifs inartificialways,ad�ancingtechnicalorrestricti�einterpretationstonarrowtheCommission’sfindings,orurgingbroadandflexiblereadingstoexpandthem .ThetaskoftheCommissionatthisphaseoftheproceedingsisnottore�iseorexpanditspriorfindingsonliability,buttoapplythosefindingsindeter-miningtheappropriatecompensationtobeawarded .Indoingso,theCom-missionisguidedprincipallybythedispositifs ofthoseAwards,construedinaccordancewiththeordinarymeaningofthetermscontainedtherein,16tak-ingaccountoftheParties’claimsandargumentsleadingtothefindingsandtheCommission’sappreciationofthefactsandlegalreasoningasexplainedinthebodyoftheAwards .17
31 . Inpleadingtheirdamagesclaims,thePartiesfiledabroadrangeofnewe�idencebearingonthequantumofdamageassociatedwiththeCommis-sion’sliabilityfindings .AlthoughthePartiespresentedthesedamagesclaimsinbroadtermsthatdidnotalwayscorrespondtotheCommission’sliabilityfindings,theCommissionhasconsideredthise�idencestrictlywithinthescopeofitsliabilityAwards .Insomecases,theCommissionhasfounditnecessarytomeasurethedamagesphaseclaimsalsoagainste�idenceofferedattheliabil-ityphase,leadingtodiscussionofthee�idenceunderlyingtheliabilityAwardsthroughoutthisAward .TheCommissionhasbeencautioustoremainwithinthelimitsofitsliabilityfindingsinmakingitsawardsofcompensation .
16 See, e.g.,TheLaguna del Desierto Arbitration(Arg ./Chile),(Award),113I .L .R .1,194,atpara .70(1995)(“Internationallawpro�idesrulesforinterpretationofanylegalinstrument,whetheritbeatreaty,aunilateralact,anarbitralawardoraresolutionofaninternationalorganization .Theyinclude:thenaturalandordinarymeaningofthewordsused;theircontext;andtheireffet util.”) .
17 AsnotedinarecentjudgmentoftheInternationalCourtofJustice,“ifanyques-tionarisesastothescopeofres judicata attachingtoajudgment,itmustbedeterminedineachcaseha�ingregardtothecontextinwhichthejudgmentwasgi�en .”ApplicationoftheCon�entiononthePre�entionandPunishmentoftheCrimeofGenocide(Bosn .&Herz .� .Serb .&Mont .),2007I .C .J .p .48,atpara .125(Feb .26) .See also ShabtaiRosenne,IIItheLawandPracticeoftheInternationalCourt1920–2005p .1603(4thed .2006)(discussingtheimportanceattachedtowrittenandoralpleadingsinascertainingthescopeofres judicata) .
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32 . Unlike the Commission’s findings of liability, its dismissals ofclaims,exceptdismissalsforlackofjurisdiction,arenotrestatedinthedis-positifs.Ne�ertheless,theyalsoaredefiniti�eresolutionsofthoseclaims,withres judicata effect .
33 . TheCommissiondismissedclaims,bybothParties, for failureofproof .Thesedismissalsareconclusi�edispositionsoftheseclaimsforthepur-poseoftheseproceedings,buttheireffectisotherwiselimited .BothPartiessometimesha�eurgedthatthesedismissalsreflectedanaffirmati�edecisionbytheCommissionthatcertaine�entsdidnotoccur .Thisisnotcorrect .ExceptasindicatedinitsAwards,theCommissiondidnotmakesuchfactualjudgments,findinginsteadonlythattheclaimantPartyhadnotpresentedsufficiente�i-dencetopro�eitsclaim .Thesefindingsdonotreflectaffirmati�efactualdeter-minationsbytheCommissionthatparticulare�entsdidordidnotoccur .
b. evidence and the burden of Proof at the damages Phase34 . E�idencenecessarilyhasplayedacentralroleintheseproceedings .
Keyissuesoftenha�eboileddowntoproofoffacts,notissuesoflaw .Itisfun-damentaltothelegalprocessthatjudgmentsregardingfactsmustbebaseduponsufficiente�idence .Thisposedspecialchallengesintheseproceedings .BoththePartiesandtheCommissionrecognizethatconclusi�eproofoffactsinawarthatbeganele�enyearsagooftenisnotfeasible .Howe�er,thedifficul-tiesofproofdonotrelie�etheCommissionofitsobligationtomakedecisionsonlyonthebasisofsufficiente�idence .
35 . Attheliabilityphase,theCommissionrequiredclearandcon�inc-ingproofofliability .ItdidsobecausetheParties’claimsfrequentlyin�ol�edallegationsofserious—indeed,sometimesgra�e—misconductbyaState .AfindingofsuchmisconductisasignificantmatterwithseriousimplicationsfortheinterestsandreputationoftheaffectedState .Accordingly,anysuchfindingmustrestuponsubstantialandcon�incinge�idence .ThisiswhytheInterna-tionalCourtofJusticeandotherinternationaltribunalsrequirethatfactsbeestablishedwithahighdegreeofcertaintyinsuchcircumstances .18
36 . InthehearingsontheGroupNumberOnedamagesclaims,EritreaurgedthattheCommissioncontinuetoutilizeastandardof“clearandcon-�incing”e�idence .Ethiopiaarguedthatdecisionsrelatingtodamagesshouldinstead be based on the preponderance of the e�idence . Like some othercourtsandtribunals,theCommissionbelie�esthatthecorrectpositionlies
18 See, e.g.,ApplicationoftheCon�entiononthePre�entionandPunishmentoftheCrimeofGenocide,2007I .C .J .pp .76–77,paras .209–210(“TheCourthaslongrecognizedthatclaimsagainstaStatein�ol�ingchargesofexceptionalgra�itymustbepro�edbye�i-dencethatisfullyconclusi�e . . . .InrespectoftheApplicant’sclaimthattheRespondenthasbreacheditsundertakingstopre�entgenocideandtopunishandextraditepersonschargedwithgenocide,theCourtrequiresproofatahighle�elofcertaintyappropriatetotheseriousnessoftheallegation .”) .
528 ERITREA/ETHIOPIA
inanamalgamofthesepositions .19TheCommissionhasrequiredclearandcon�incinge�idencetoestablishthatdamageoccurred,withintheliabilityparametersofthePartialAwards .Howe�er,forpurposesofquantification,ithasrequiredlessrigorousproof .Theconsiderationsdictatingthe“clearandcon�incingstandard”aremuchlesscompellingforthe lesspoliticallyandemoti�elychargedmattersin�ol�edinassessingthemonetaryextentofinjury .Moreo�er,theCommissionrecognizestheenormouspracticalproblemsfacedbybothPartiesinquantifyingtheextentofdamagefollowingthe1998–2000war .Requiringproofofquantificationofdamagebyclearandcon�incinge�idencewouldoften—perhapsalmostalways—precludeanyreco�ery .ThiswouldfrustratetheCommission’sagreedmandatetoaddress“thesocio-eco-nomicimpactofthecrisisontheci�ilianpopulation”underArticle5(1)oftheAgreement .20
37 . ThepresenttaskisnottoassesswhetherthetwoStatePartiescom-mittedserious�iolationsofinternationallaw .Thathasbeendone .Now,theCommissionmustdetermine,insofaraspossible,theappropriatecompen-sation foreachsuch�iolation .This in�ol�esquestionsofadifferentorder,requiringexercisesofjudgmentandapproximation .Asdiscussedbelowinconnectionwithparticularclaims, thee�idenceregardingsuchmattersastheegregiousnessorseriousnessoftheunlawfulaction,thenumbersofper-sonsinjuredorpropertydestroyedordamagedbythataction,andthefinan-cialconsequencesofsuchinjury,destructionordamage,isoftenuncertainorambiguous . Insuchcircumstances, theCommissionhasmade thebestestimatespossibleonthebasisofthea�ailablee�idence .Likesomenationalcourts21andinternationallegislators,22ithasrecognizedthatwhenobligatedtodetermineappropriatecompensation,itmustdosoe�eniftheprocessin�ol�esestimation,ore�enguesswork,withintherangeofpossibilitiesindicatedbythee�idence .Ne�ertheless,insomecasesthee�idencehasnotbeensufficienttojustifyanyawardofcompensation .
38 . TheCommissionalsohastakenaccountofatrade-offfundamen-taltorecentinternationaleffortstoaddressinjuriesaffectinglargenumbersof�ictims .InstitutionssuchastheUnitedNationsCompensationCommis-
19 Mark Kantor, Valuation for Arbitration: Compensation Standards,ValuationMethodsAndExpertEvidencepp .72–73(2008) .
20 See ChittharanjanAmerasinghe,EvidenceinInternationalLitigationpp .241–242(2005) .
21 See Chaplin� .Hicks[1911]2K .B .786,972C .A .(whereprecisionoraccuracyisnotpossibleinassessingcontractdamages,“thejurymustdothebesttheycan,anditmaybethattheamountoftheir�erdictwillreallybeamatterofguesswork .Butthefactthatdamagescannotbeassessedwithcertaintydoesnotrelie�ethewrongdoerofthenecessityofpayingdamagesforhisbreach . . . .”) .
22 See UNIDROIT Principles of International Commercial Contracts, available at www .unidroit .org, art . 7 .4 .3, para . (3) (“Where the amount of damages cannot beestablishedwithasufficientdegreeofcertainty,theassessmentisatthediscretionofthecourt .”) .
partxvii—FinalAWARD eritrea’sdamagesclaims 529
sion(“UNCC”)and�ariouscommissionscreatedtoaddressbank,insuranceandsla�elaborclaimsstemmingfromtheNazieraha�eadoptedlessrigorousstandardsofproof,eithertoshowthatanindi�idualsufferedinjuryorregard-ing theextentof that injury .Asa trade-off,compensation le�elsalsoha�ebeenreduced,balancingtheuncertaintiesflowingfromthelowerstandardofproof .23WhiletheclaimsaddressedinthisAwardareStateclaims,notmassclaims,theCommissionhasinsomeinstancesappliedsimilaranalysiswithrespecttoclaimsforinjuriesordamagesthatweresufferedbylarge,butuncer-tain,numbersof�ictimsandwherethereislimitedsupportinge�idence .
C. Causation39 . Compensationcanonlybeawardedinrespectofdamagesha�ing
asufficientcausalconnectionwithconductthat�iolatesinternationallaw .Intheirwrittenpleadings,andintheGroupNumberOnedamageshearingsinApril2007,thePartiesaddressedthenatureofthecausalconnectionrequiredby international lawbetweenadelictandcompensable injury .InDecisionNumber7ofJuly2007,theCommissionaddressedtheissueofcausation,andhasbeenguidedinthecurrentproceedingsbytheprinciplesarticulatedthere .InthatDecision,theCommissiondeterminedthat:
thenecessaryconnectionisbestcharacterizedthroughthecommonlyusednomenclatureof“proximatecause .”Inassessingwhetherthistestismet,andwhetherthechainofcausationissufficientlycloseinaparticularsituation,theCommissionwillgi�eweighttowhetherparticulardamagereasonablyshouldha�ebeenforeseeabletoanactorcommittingtheinternationaldelictinquestion .Theelementofforeseeability,althoughnotwithoutitsowndif-ficulties,pro�idessomedisciplineandpredictabilityinassessingproximity .Accordingly,itwillbegi�enconsiderableweightinassessingwhetherpar-ticulardamagesarecompensable .TheCommissionnotesthat,inmanysituations,thechoiceof�erbalfor-
mulatodescribethenecessarydegreeofconnectionwillresultinnodifferenceinoutcomes .Inthisregard,bothPartiesagreedthatasignificantrangeofpos-sibledamagesrelatedtowarliebeyondthepaleofStateresponsibility . . . .24
23 See JacomijnJ .�anHaersolte-�anHof,Innovations to Speed Mass Claims, New Standards of Proof,in RedressingInjusticesThroughMassClaimsProcesses:Inno-vativeResponsestoUniqueChallengesp .13(PermanentCourtofArbitrationed .,2006) .
24 DecisionNo .7,supra note10,atparas .13–14 .
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V. assessinG ComPensaTion and TeCHniCal finanCial issues
40 . Astheirclaimsdemonstrate,bothPartiesrecognizedthatthe�iola-tionsofinternationallawidentifiedbytheCommissiongi�erisetoanobliga-tiontopaycompensation .25Determiningtheamountofsuchcompensation,particularlyinlargeinter-Stateclaimssuchasthese,cannotbeamechanicalprocess .Inweighingitsawardsofcompensationfordamages,theCommis-sionhashadtotakeintoaccountmultiplefactors,oftennotsubjecttoprecisequantification .Ithasweighedthenature,seriousnessandextentofparticularunlawfulacts .Ithasexaminedwhethersuchactswereintentional,andwheth-ertheremayha�ebeenanyrele�antmitigatingorextenuatingcircumstances .Ithassoughttodetermine,insofaraspossible,thenumbersofpersonswhowere�ictimsofparticular�iolations,andtheimplicationsofthese�ictims’injuriesfortheirfutureli�es .
a. Currency Conversion
41 . ThePartiesagreedthattheFinalAwardsrenderedbytheCommis-sionshoulddenominatecompensationinUnitedStatesdollars,andmanyoftheirclaimsforcompensationareexpressedsolelyintermsoftheU .S .currency .26Inotherinstances,theParties’claimsande�idenceha�ereflectedamountsdenominatedinEthiopianbirr,Eritreannakfaand,occasionally,other currencies . In those circumstances, the Commission generally hasmadecon�ersionstoU .S .dollarsutilizingtheexchangeratepre�ailingatthetimeoftheinjuryunderlyingthecompensationclaim .Inafewcases,wheredocumentsquantifyinglosses(forexample,estimatesofrebuildingcosts)werepreparedsometimeaftertheinjury,andwherethereweresignifi-cantchangesinexchangerates,theCommissionhasutilizedtheexchangeratepre�ailingwhenthequantificationwasprepared .Thishasbeenneces-sary inorder topre�entwindfalls toeitherPartyresulting fromchanges
25 See HagueCon�ention(IV)RespectingtheLawsandCustomsofWaronLand,Oct .18,1907,36Stat .p .277,1Be�ansp .631,art .3(“Abelligerentpartywhich�iolatesthepro�isionsofthesaidRegulationsshall,ifthecasedemands,beliabletopaycompensa-tion”);ProtocolAdditionaltothe1949Gene�aCon�entionsofAug .12,1949,andRelatingtotheProtectionofVictimsofInternationalArmedConflicts,June8,1977,1125U .N .T .S .p .3,art .91(“APartytotheconflictwhich�iolatesthepro�isionsoftheCon�entionsorofthisProtocolshall,ifthecasedemands,beliabletopaycompensation”)[hereinafterProtocolI] .
26 AnyreferenceinthisAwardtoamountsclaimedinU .S .dollars,wheretheunder-lyingclaimin�ol�esamountsdenominatedinnakfaorbirr,issolelyforpurposesofillus-tration .Exceptwhereotherwisestated,con�ersionsofclaimedamountsintoU .S .dollarsarethosepro�idedbyaParty,anddonotreflectanyjudgmentbytheCommissionregard-ingtheappropriatenessoftheexchangerateemployedorrelatedmatters .
partxvii—FinalAWARD eritrea’sdamagesclaims 531
inexchangerates .Asapracticalmatter,thismadeseparateassessmentsofinflationunnecessary .
42 . InthecaseofEritrea’sclaims,theCommissionhasutilizedthefol-lowingexchangeratesbetweenEritreannakfa(“ERN”)andU .S .dollars .27
YearAnnualA�erageERN:US$ExchangeRate
1998 ERN7 .36=US$11999 ERN8 .15=US$12000 ERN9 .63=US$12001 ERN11 .31=US$12002 ERN13 .96=US$12003 ERN13 .88=US$12004 ERN13 .79=US$12005 ERN15 .37=US$12006 ERN15 .38=US$1
b. interest43 . Article5(14)oftheDecember2000Agreementpro�ides“interest
. . .maybeawarded .”Thus,theCommissionhasdiscretionwhetherornottoawardinterest .BothPartiesaskedtheCommissiontodoso .Howe�er,theCommissionhasdecided,intheexceptionalcircumstancespresentedbytheseclaims,nottocalculateandawardinterestontheamountsawardedtoeitherParty .
44 . TheCommissionhasparticularlytakenintoaccountthefactthattheParties’claims,andtheamountsawardedinrespectofthoseclaims,arebroadlysimilar .Accordingly,thisisararecaseinwhichinterestonthecom-pensationawardedwouldnotmateriallyaltertheParties’economicpositionsfollowingthetimelypaymentbyeachoftheamountsduetheother .Further,theamountsawardedinmanycasesreflectestimatesandapproximations,notprecisecalculationsrestinguponcleare�idence .Likesomeothercommis-sions,theCommissionbelie�esthatthiselementofapproximationreinforcesthedecisionagainstawardinginterest .Finally, theCommissionnotes thattheseproceedingsha�etakense�eralyears,reflectingthemagnitudeandcom-plexityofthetask .BothPartiesha�ebeendiligent,andtheperiodrequireddoesnotreflectalackofcooperationonthepartofeither .Accordingly,thereisnoneedforpre-awardinteresttoprotecteitherPartyfromprejudiceresultingfromdilatoryconductbytheother .
27 Aspro�idedinEthiopia’sReplyBriefonTechnicalIssues(Aug .15,2008),AnnexA(fromWorldBank,WorldDe�elopmentIndicatorsOnline) .
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C. other Technical issues45 . ThePartiesagreednottorequestpaymentofattorneys’feesorcosts
againsteachother .46 . TheCommissionhasaddressedtheeffectofthirdpartydonations
orotherthirdpartypaymentsforreplacementorrebuildingwheresuchissuesariseinspecificclaims .Withfewexceptions,theCommissionhasnotaward-edamountsreflectingdonationsorpaymentsnotrequiredorexpectedtoberepaid .
Vi. eriTrea’s GrouP number one damaGes Claims
a. The Commission’s liability findings47 . InitsPartialAwardsrenderedduringtheearlierliabilityproceed-
ings,theCommissiondecidedtheextentofEthiopia’sliabilitytoEritreawithrespecttothelatter’sclaims .Onthebasisofthosedecisions,thisFinalAwarddecidesthedamagesappropriatetocompensateEritreaforeachoftheCom-mission’s findings of liability . The following discussion addresses Eritrea’sdamagesclaimsinGroupNumberOne,heardfromApril16to27,2007 .
1. The Central Front
48 . InitsPartialAwarddatedApril28,2004,theCommissiondecidedEthiopia’sliabilitywithrespecttoEritrea’sCentralFrontClaimsNos .2,4,6,7,8and22 .ItfoundEthiopialiabletoEritreaforeightspecific“�iolationsofinternationallawbyitsmilitarypersonnelorbyotherofficialsoftheStateofEthiopia:”
1 . ForpermittingthelootingandstrippingofbuildingsinTseronaTownwhileitoccupiedthetownfromlateMay2000untillateFebruary2001,itisliablefor75%(se�enty-fi�epercent)ofthetotaldamagecausedbylootingandstrippinginthetown;2 . ForpermittingthelootingandstrippingoftheadjacentTseronaPatri-otsCemetery,itisliablefor75%(se�enty-fi�epercent)ofthetotaldamagecausedbylootingandstrippingofthecemetery;3 . ForthedestructionoftheSub-ZobaAdministrati�eBuilding,theSub-ZobaHealthCenter,andtheWarsaiHotelinTseronaTown;4 . Forinflictingdamageontheinfrastructureofthe�illageofSerhadur-ingitsoccupationofthat�illage,itisliablefor70%(se�entypercent)ofthetotaldamageinflictedonSerhafromMay1998throughFebruary2001;5 . Forfailuretotakeeffecti�emeasurestopre�entrapeofwomenbyitssoldiersduringitsoccupationofSenafeTown;
partxvii—FinalAWARD eritrea’sdamagesclaims 533
6 . ForpermittinglootingandstrippinginSenafeTownduringitsoccu-pation,itisliablefor75%(se�enty-fi�epercent)ofthetotaldamagefromlootingandstrippingsufferedinthetownbetweenMay26,2000andJune2001;7 . Fortheunlawfuldestructionoforse�eredamagetothefollowingthir-teenmajorstructuresinSenafeTownduringtheEthiopianoccupationofthetown:
a . TheElectricalAuthority(two buildings);b . TheMinistryofAgriculture(two buildings);c . TheNewTownAdministrati�eHeadquarters;d . TheOldTownAdministrati�eHeadquartersandOfficesWest;e . TheOldTownAdministrati�eHeadquartersandOfficesEast;f . SenafeSecondarySchool;g . SenafeHospital;h . Sub-ZobaAdministrati�eandResidential(three buildings);andi . TelecommunicationsBuilding .
Theliability is for100%(onehundredpercent)ofthedamagetoeachofthesestructures,exceptforthehospital,wheretheliabilityis90%(ninetypercent);and8 . Forpermitting,whileoccupyingthearea,deliberatedamagebyexplo-siontotheStelaofMatara,anancientmonumentintheSenafeSub-Zoba .
2. The Western Front
49 . In its Partial Award dated December 19, 2005, the CommissiondecidedEthiopia’sliabilitywithrespecttoEritrea’sWesternFrontClaimsNos .1,3,5and9–13 .TheCommissionfoundEthiopialiabletoEritreaforele�enspecific“�iolationsofinternationallawcommittedbyitsmilitarypersonnelorbyotherofficialsoftheStateofEthiopia:”
a . Forpermittinglootingandburningofbuildingsanddestructionofli�estockinthetownofTeseneyduringMayandJune2000;b . Forpermittinglootingandburningofhousesanddestructionofli�estockinthe�illageofAlighidirandtheburninganddetonationofthenearbycottonfactoryanditsstoredcottonduringMayandJune2000;c . Forpermittinglootingandburningofstructuresanddestructionofli�estockinthetownofGulujduringMayandJune2000,Ethiopiaisliablefor90%(ninetypercent)ofthetotallossanddamagetopropertyinGulujduringthattime;d . Forpermittinglootinginthe�illageofTabaldiaduringJune2000;e . Forpermittinglootinginthe�illageofGergefduringJune2000;
534 ERITREA/ETHIOPIA
f . Forpermittinglootingandstrippingofbuildingsanddestructionofli�estockinOmhajerfromMay16,2000untilthedepartureofthelastEthiopianforcesinSeptember2000,Ethiopiaisliablefor75%(se�-enty-fi�epercent)ofthetotalpropertydamageinOmhajerduringthattime;g . Forpermittingbreaking,enteringandlootingofhouses,businessestablishmentsandgo�ernmentbuildingsinthetownofBarentudur-ingitsoccupationfromMay18to26,2000;h . Forthedestructionofthepolicestation,thecourthouse,theGash-SetitHotelandConferenceCenter,andabakeryinthetownofBarentuduringitsoccupation;i . Forpermittinglootingofbuildingsanddestructionofthepolicesta-tioninthetownofTokombia,andthedestructionofthenearbyRoth-mantobaccoplant,duringitsoccupationinMay2000;j . ForpermittinglootingofbuildingsinMolkiSub-ZobaonMay15to16,2000;andk . Forfailuretotakeeffecti�emeasurestopre�enttherapeofwomeninthetownsofBarentuandTeseney .
50 . InthesamePartialAward,theCommissiondecidedEthiopia’slia-bilitywithrespecttoEritrea’sClaim21,concerningtheDisplacementofCi�il-ians .ItfoundEthiopialiabletoEritrea“fortheunlawfuldisplacementofalltheresidentsofAwgaroin�iolationofArticle49ofGene�aCon�entionIV .”
b. loss of Personal and business Property
1. Eritrea’s Claim
51 . Asnotedabo�e,theCommissionmadeliabilityfindingsin�ol�inglooting,stripping,burning,killingli�estockorotherdestructionofordamagetoindi�idualandbusinesspropertyinMolkiSub-Zobaandele�enspecifiedtownsand�illagesontheCentralandWesternFronts .(Zobasandsub-zobasareEritreanlocalgo�ernmentalentities .MolkiSub-ZobaisontheWesternFront .)Theseliabilityfindingsin�ol�eddestructionordamageoccurringdur-ingEthiopia’sin�asionofEritreainMay2000anditssubsequentoccupationofsomeareasinEritrea .Eritreaclaimedmorethan5 .5billionnakfaforfixed-sumdamagesinrespectoftensofthousandsofpersonsandbusinessesthatallegedlyexperiencedpropertylossesduringthesee�ents .Thisamountwasdi�idedbetweenhouseholds(68%)andbusinesses(32%) .Mostofthebusi-nessclaimsin�ol�edlocalmerchants,cafésandbars,andothersimilarsmallbusinesses
52 . EritreadidnotstructurethesepropertylossclaimstocorrespondtotheCommission’sspecificliabilityfindingsintheCentralandWesternFrontPartialAwards .Instead,theclaimineffectgroupedtogetherandsoughtcom-pensationforalloftheCommission’sfindingsin�ol�inglossofpropertyonthe
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CentralandWesternFronts,exceptforEritrea’sseparateclaimsfordestructionordamagein�ol�ing201identifiedstructures,whicharediscussedinSectionVI .Cbelow .Eritreathenclaimedforallofthesecombinedlosses,calculatingtheamountclaimedonthebasisofdatafromclaimsformscollectedfrommorethan28,000affectedhouseholdsandbusinessesintherele�antareasofEritrea .Thecompletedclaimsforms(whichwerenotintroducedintotherecord),anddataderi�edfromsamplegroupsofthem,wereusedtoestimateboththeclaimednumberof�ictimsandthea�eragepercapitaamountsoftheirinjuries .Eritreathenmultipliedtheestimatednumberof�ictimsbytheestimatedpercapitaamountstodetermineitstotalclaim .Theclaimreflecteda�eragelossessaidtobemorethan148,000nakfaperhouseholdsur�eyed,andmorethan543,000nakfaperbusiness .
53 . Eritreamaintainedthatthisapproachwasappropriate,gi�enthelargenumbersofpersonsharmedbyEthiopia’smisconductandthesimilar-ityoftheirinjuries .InEritrea’s�iew,itsuseofclaimsformswasinharmonywiththeCommission’sDecisionsNumbers2and5 .28ThoseDecisions,takenin2001beforetheParties’claimswerefiled,establishedcertainelementsofapossiblemassclaimssystemutilizingclaimsformsfilledoutbyindi�idualclaimantsandsubmittedontheirbehalf .Asmattersde�eloped,bothPartieselectedtofiletheirclaimsasState-to-Stateclaims,andnottopursuetheoptionoffilingmassclaimsonbehalfofindi�iduals .Accordingly,theCommissiondidnotpursuefurtherworkonapossiblemassclaimssystem .
54 . Eritrea’s Office of the Legal Ad�isor designed the claims forms,whichwerefilledoutbyorforindi�idualclaimantsparticipatinginlocalcol-lectionprogramsadministeredbylocalofficialsworkingincooperationwithEritrea’slawyers .Claimantssworetothetruthoftheinformationcontainedintheforms,withilliterateclaimantsbeingaskedtoaffirmthattheirstatementsweretruthful .Eachcompletedformrecei�edanidentifyingnumber .
55 . Forms were collected first in the area of Eritrea’s Central Frontclaims,focusingonthetownsofSenafe,TseronaandSerha,wheretheCom-missionhadfoundseriouslootinganddestruction .Atotalof8,445formswerecollectedfortheCentralFront .EritreausedadifferentclaimsformintheareaoftheWesternFront,modifiedtoreflecttheCommission’sliabilityfindingsontheWesternFrontclaims,aswellasrecommendationsbyEritrea’stechnicalad�iser .Here,20,370formswerecollected .
56 . Inall,28,815claimsformswerecollected:25,595claiminglossordamagetopersonalproperty,and3,220claimingdamagetobusinesses .Indi-�idualscouldfilebothhouseholdandbusinessclaims .Eritreacontendedthatthetotalnumberofclaimsrepresentedbytheformswasconsistentwiththe
28 Eritrea-Ethiopia Claims Commission Decision No . 2 (“Claims Categories,FormsandProcedures”)andDecisionNo .5 .(“MultipleClaimsintheMassClaimsProc-ess,Fixed-SumCompensationatthe$500and$1500Le�els,MultiplierforHouseholdClaims”)(bothdatedAugust2001) .
536 ERITREA/ETHIOPIA
EritreanNationalStatisticsOffice’sestimatesin2000ofapopulationof29,682familiesand115,867peopleintheareasconcerned,estimatesthatitthoughtwerelikelylowerthanthepopulationatthetimeofEthiopia’sin�asion .
57 . Eritreauseddatafromwhatitdeterminedtoberepresentati�esam-plesizesof548businessand540residentialclaimsformstodeterminefixedamountsreflectinga�erageamountsofinjuryclaimed .Eritreadidsobecauseitregardedthepoolofmorethan28,000claimsformstobetoolargetoper-mittheParties,ortheCommission,toassessindi�idualclaims .Accordingly,utilizingaconsultant’sad�ice,Eritreadeterminedthesamplesizesthoughttorepresentthepopulationsof�ictimsfortheCentralandWesternFronts .Itthenusedarandom-numbergeneratortoselectindi�idualclaimsformstopopulatethesesamples .PersonnelfromEritrea’sOfficeoftheLegalAd�isorthenanalyzedtheamountsclaimedintheselectedforms .
58 . Theanalysisofresidentialclaimsformsincludedamountsclaimedtorepairorreplacelostassets,totallostincome,andexpensesduringdisplace-ment .Forbusinessforms,theanalysisincludedthegreaterofthebusiness’s�aluewhenthedamageoccurredmultipliedbythea�erageofthepercentageofthein�entorydestroyedandthestructuredestroyedplusthecashlooted,or totalreplacementcostpluslostincomepluslootedcash .Theanalysisexcludedresidentialclaimso�ertwomillionnakfaandsomeclaimsforlostincome,and�aluedunresponsi�eorob�iouslyincorrectanswers(forexample,claimsforlossofmorethan100%ofaclaimant’sproperty)atzero .ThequestionsposedintheclaimsformswerenotcorrelatedtotheCommission’sspecificliabilityfindings,andtherecorddoesnotindicatethatanythingwasdoneintheanalysisprocesstorelateclaimedamountstothosefindings .Therealsoisnoindicationthattheamountsclaimedwere�erifiedthroughsamplingoftheunderlyinge�idence(ifany)oranyothermeans .
59 . Baseduponitsanalysisofthesampleclaimsforms,Eritreaderi�edcommon a�erage claim amounts for the Central and Western Fronts andappliedthea�eragestothetotalclaimsformpopulationsforthoseregions .Reflectingatotala�erageclaimedamountof543,846nakfaforbusinessclaims,Eritreaarri�edattheestimatedtotalof1,751,183,196nakfaforthoseclaims .Itcalculatedatotalof3,805,065,870nakfaforresidentialclaims,reflectingana�erageclaimedamountof148,664nakfa .
60 . Asapartialcheckontheaccuracyofthefixedamountsclaimed,Eritrea’sOfficeoftheLegalAd�iserde�elopedhypothetical“representati�epricelists”ofthehouseholdfurniture,furnishingsandothergoodstypicallyfoundinpoorandmiddleclasshomesinEritreaandinthehomesofmoreaffluentpersons .“Shoppers”fromtheOfficeoftheLegalAd�isorthendeter-minedtheretailpricesofthesegoodsinAsmara .Theresultinghypothetical�aluesofhouseholdfurnitureandfurnishingssubstantiallyexceededthea�er-age�aluesestimatedbasedupontheclaimsforms .
partxvii—FinalAWARD eritrea’sdamagesclaims 537
2. Ethiopia’s Response
61 . EthiopiaobjectedtoEritrea’sforms-basedclaimsforpersonalandbusinesspropertyonmultiplegrounds .EthiopiastressedthatthequestionsontheclaimsformswerenotcorrelatedtotheCommission’sliabilityfindings,andthattheformssolicitedclaimsfortypesofdamageforwhichtheCom-missiondidnotfindliability .Inthisregard,EthiopianotedthattheCommis-sion’srele�antliabilityfindingsprimarilyin�ol�edlossesfromlooting,butthattheclaimsformsalsoin�itedclaimsforothertypesofpropertyloss,forlostincomeandbusinessprofits,andforothertypesofdamagesforwhichtheCommissiondidnotfindliability .Italsoarguedthatsomequestionswereleading,andthatthewordingofthequestionsandthestructureoftheformin�ited(ande�enencouraged)inflatedanswersanddoublecounting .
62 . Ethiopia pointed out that the amounts claimed were extremelyhighinrelationtopercapitaincomesinEritrea,contendingthatthea�erageresidentialclaimwasse�enty-fi�etimespercapitagrossnationalincome .ItstressedthatEritreamadenoeffort tochecktheclaimedamountsagainstsupportinge�idence; indi�idualclaimantswerenote�enasked topro�idedocumentationorsupportfortheirclaims .InEthiopia’s�iew,thelackofanyrequirementtopro�idesupportingdocumentation,andtheabsenceofanyapparenteffortbyEritreanofficialsto�erifytheamountsclaimed,furtherencouragedclaimantstoinflatetheirclaims .
63 . EthiopiaalsocalculatedEritrea’sclaimstobetheequi�alentofapercapitaawardamountofUS$5,072withthebusinessclaimsincludedandUS$3,911withoutthoseclaims,whichEthiopia�iewedasexorbitant .EthiopiafurthermaintainedthattheclaimformsrepresentedapopulationgroupthatdidnotrealisticallycorrespondtoEritrea’scensusdata .
64 . EthiopianotedthattheCommission’sfindingswereusuallystatedintermsofspecifictownsorotherlocations,andcontendedthatthosefindingsshouldbeconstruedinalimitedandpreciseway,toapplyonlytothenumbersofpersonsshownbyEritrea’scensustoli�ewithinthepoliticalboundariesofthosespecifictownsor�illages .
3. The Commission’s Conclusions
65 . Forcompellingreasons,includingtheshortnessoftimeandresourc-es,bothPartieselectedtofiletheirclaimsinDecember2001asState-to-Stateclaims,andnottoutilizethemassclaimsproceduresen�isionedasapossibleoptionintheCommission’sDecisionsNumbers2and5 .Howe�er,theCom-missiondidindicateinitscommunicationswiththeParties,forexampleinitsletterofAugust29,2001,andattheJuly2006WorkingGroupmeeting,thatatthedamagesphaseitwaspreparedtoauthorizeaPartytoutilizeelementsofamassclaimsprocessinappropriatesituations .
538 ERITREA/ETHIOPIA
66 . Ne�ertheless,theclaimsformsprocessthatEritreadesignedandimplementedforthesepropertylossclaimshassignificantweaknesses .Inspec-tionoftheformsconfirmsthattheyarenotcorrelatedtotheCommission’sfindingsof liability,andthat theyaddresssignificantelementsofdamagesforwhichtheCommissiondidnotfindliability .Somequestionsarephrasedinwaysthatmayha�ein�itedinflateddamageclaimsorotherwiseelicitedunreliableinformation .
67 . Theprocessfordeterminingthesepropertylossclaimsalsoseemstoha�ebeenlargelydi�orcedfromanyunderlyinge�idence .Personswhofilledoutclaimsformswerenotrequiredtopro�idesupportinge�idenceordocu-mentation,andanynarrati�einformationtheydidofferapparentlywasnotconsideredinassessingtheamountsclaimed .(IntheformusedfortheWest-ernFront,narrati�ematerialwasrelegatedtotheendoftheform .)Thus,therecorda�ailabletotheCommissionoffersnomeanstotestor�erifythe�erylargeamountsclaimed .This isofparticularconcernbecauseEritreaseekspercapitaamountssaidtoreflectthea�erageofthousandsofpersons’actualdamages(subjecttoafewmodestcaps),notareducedamountoffixed-sumcompensation .
68 . Eritrea’s“representati�epricelists”donotofferameaningfulcheckontheamountsclaimed .Theselistsreflecttheimpressionsandpersonalobser-�ationsofEritrea’slegalstaff,notanysystematicstudyofhouseholditemsortheircostintheaffectedareas .Further,thepricesutilizedarethoseofnewgoodsatretailinAsmarashops,whichseemlikelytobeappreciablyhigherthanthe�aluesofusedgoodsintheaffectedareas .
69 . AsEritreaobser�edduringtheproceedings,theUNCCandotherpastmassclaimsprocessesha�eusedclaims forms to identifyandcollectinformationabout�ictimsofparticulartypesofinjuryforwhomfixed-sumcompensationmaybeappropriate .Howe�er,thistypicallyhasbeendoneinclaimsprogramscombiningareducedburdenofproofwithcorrespondinglyreducedfixed-sumcompensationle�els .Theseprogramsalsoha�eincorporat-edmeasurestotesttheunderlyinge�idence,atleastonastatisticalsamplingbasis,asacheckonspuriousorinflatedclaims .Incontrast,Eritreaclaimshigha�eragepercapitaamountssaidtoreflectactuallosses,withoutanysupport-inge�idence .Thisisnotsufficienttosustainaclaimfor5 .5millionnakfa .
70 . Thislea�estheCommissioninadifficultposition .Thee�idenceattheliabilityphasepro�edthatmanyEritreansdidsuffersignificantlossesofpropertyatthehandsofEthiopianforcesduringandafterEthiopia’s2000in�asion .Howe�er,neitherthate�idencenorthee�idencepresentedfromtheclaimsformprocessquantifiedtheextentofinjuryorpro�edentitlementtothelargeamountsEritreanowclaims .Inacommercialarbitrationbetweentwopri�ateparties,thismightwarrantdismissalofadamagesclaimforfailure
partxvii—FinalAWARD eritrea’sdamagesclaims 539
ofproof .TheCommissionisnotpreparedtotakethatstep .JustaswithsomelargeclaimsbyEthiopia,wheretheCommissionalsohasidentifiedseriousdifficulties,therewaswidespreadinjuryhere .Thereweresignificant�iolationsofinternationallawcausingharmtomanyindi�idual�ictims .Insuchcircum-stances,itisnotappropriatetodismisstheclaimoutright .Ethiopia’scounselrecognizedattheApril2007hearingthat“Eritreaisentitled[to]compensationbasedonyourawards .”29
71 . Atthehearing,counselforEritreaindicatedthattheclaimsformsareinstorage,andthat,iftheCommissiondidnotacceptEritrea’sanalysis,theCommissioncouldanalyzethedata intheformsinanyothermannerthoughtsatisfactory .TheCommissiondoesnotha�e timeorresources forsuchafundamentalre-assessmentofaParty’sclaim .ItisnottheUNCC,with(atpeak)staffofse�eralhundredpersonsandextensi�efinancialresources .Moreo�er,fortheCommissiontoacceptEritrea’sclaimsformsase�idenceandcommencetoanalyzethemafterthehearingwouldraiseseriousdueprocessquestionsoffairnessandequaltreatmentoftheParties .
72 . In the circumstances, the Commission has sought to de�elop areasonableestimateofthelossesresultingfromtheinjuriesitfound,takingaccountofthelikelypopulationoftheaffectedareasandestimatesofthefre-quencyandextentofloss .Thisprocesswasuna�oidablyimpreciseanduncer-tain,butitwasnecessarygi�enthelimitationsoftherecord .
73 . Inonerele�antrespect,theParties’positionsdidnotdiffergreatly .Bothofferedbroadlysimilarfigures—rangingfromroughly99,000to114,000persons—forthepopulationsoftheareasco�eredbytheCommission’slia-bilityfindings(MolkiSub-Zobaandele�enspecifiedtownsand�illages) .Inthe Commission’s �iew, losses should be assessed by households, becausetheylargelyfelluponhouseholds,notindi�iduals .Therefore,theCommis-siondi�idedthepopulationfiguresbytheapproximatenumberofpersonsperhousehold,toestimatethenumberofhouseholdspotentiallyaffectedbyconductforwhichtheCommissionfoundliability .
74 . Therecord ismuch less clear regarding the frequencyandextentoflosses .Eritreaclaimeda�eragehouseholdlossesof148,664nakfa,butthisamountissomuchgreaterthanthea�eragepercapitaincomeinEritreathattheCommissionfindsitunrealisticandunpersuasi�e .Inassessingpossiblelosses,theCommissiontookaccountof,amongotherthings,theamountsclaimedforsimilarlossesfromlootingofhouseholdsinZalambessaandruralTigray,asindicatedbyEthiopia’se�idence .(Withrespecttothelatter,theCommissionnotesthatEritrea’sclaimin�ol�edlossesin�illagesandtowns,whereresidentswerelikelytoownmoregoodspotentially�ulnerabletolooting,forexample,furniture, shop in�entory, sewingmachines, smallelectricalappliancesandsheetmetalroofing .)Althoughnotlegallycontrolling,theCommissionalso
29 TranscriptoftheEritrea-EthiopiaClaimsCommissionHearingsofApril2007,PeacePalace,TheHague,atp .862(Mr .Picard)(April25,2007) .
540 ERITREA/ETHIOPIA
consideredtheamountsestablishedin2001asappropriatele�elsoffixed-sumcompensation,shouldthePartieselecttoutilizeamassclaimssystem .
75 . TheCommissionalso took intoaccount theseriousnessof theselossestothepersonswhosufferedthem .Manyofthoseinjuredwerepeopleofmodestmeanswholostalltheyhad,includingtheirmeansofsustenance .Particularlygi�enmany�ictims’limitedresources,thelossoftheirresidentialand/orbusinesspropertyleftmanyofthemfacingprotracteddestitutionanddependency .
76 . Takingtheforegoingconsiderationsintoaccount,theCommissionsoughttoestimatetheappropriatecompensationforlootinglossesutilizingse�eraldifferentapproaches,allofwhichsuggestedasimilarresult .Basedonitsassessmentoftherecord,theCommissionawardsEritreathesumofUS$13,500,000ascompensationforlossesofresidentialandbusinesspropertyattributabletolootingorotherdamageforwhichEthiopiawasfoundliableinMolkiSub-Zobaandtheele�entownsand�illageslistedintheCommission’sPartialAwardsforliability .
C. damage to or destruction of buildings77 . TheCommissionfoundEthiopialiabletoEritreafortheunlawful
destructionofordamagetobothpublicandcommercialbuildingsontheCentralandWesternFrontsduringEthiopia’slarge-scalemilitaryincursionintoEritreabeginninginMay2000 .Thedestructionanddamageranthegam-utfromthedetonationofbuildings,tothestrippingofdoorsandwindowsandotherbuildingmaterialsfromstructures,tothedestructionorlootingofbuildingcontents .WheretheCommissionconcludedthatdamageinparticu-larlocationsresultedfrommultiplecausesoperatingatdifferenttimes,includ-ingcausesforwhichtherewasStateresponsibilityandothercauses(suchasshellingorothercombatdamage)forwhichtherewasnot,theCommissionfoundEthiopialiableforanapproximatepercentageofthedamagebasedontheCommission’sbestassessmentofthee�idence .Inse�eralcases,theCom-missionidentifiedspecificbuildings,includinganumberoflargepublicbuild-ings,initsliabilityfindings;inothercases,thefindingsrelatedmoregenerallytobuildingsinatown,�illageorsub-zoba .
1. Eritrea’s Claim
78 . Eritrea claimed compensation exceeding two billion nakfa plusUS$38millioninconnectionwithitsclaimfordamagedanddestroyedstruc-turesontheCentralandWesternFronts(the“BuildingClaims”) .30Forindica-ti�epurposesonly,aftercon�ertingthenakfaamountattherounded2005
30 MemorialoftheStateofEritrea,Damages(PhaseOne)filedonNo�ember15,2006[hereinafterERDamagesGroupOneMemorial],SpreadsheetAnnex .
partxvii—FinalAWARD eritrea’sdamagesclaims 541
exchangerateofERN15:US$1,thegrandtotalofEritrea’sBuildingClaimsisapproximatelyUS$180million .31
79 . Specifically,initsDamagesGroupOneMemorial,EritreasoughttotalcompensationofERN406,600,878plusUS$1,918,104forfifty-fouralleg-edlydamagedstructuresontheCentralFront,andERN1,762,735,857plusUS$35,576,750for147allegedlydamagedstructuresontheWesternFront .32
80 . Eritreade�otedextensi�eattention in itswrittensubmissions tosupportingandquantifyingitsclaimsforactualamountcompensationfordestroyedanddamagedbuildings .Eritrea’sDamagesGroupOneMemorialcontaineda520-pagechapteronitsBuildingsClaims,withspecificdiscus-sionoftheliabilitybasisande�idenceforeachof201indi�idualbuildings .Thee�idence,which�ariedwidelyfrombuildingtobuilding,includedwit-nessstatements,propertyin�entories,blueprints,constructioncontracts,andrepair/reconstructionestimates .Thee�idencecumulati�elyconsistedoftwo�olumesofwitnessstatementsandsix�olumesofdocumentarye�idence .
81 . Thedocumentaryexhibitsincludedpropertysur�eysconductedbyEritreango�ernmententitiesduringorshortlyafterEthiopia’soccupationofcertainareas .Theseincludedregionalsur�eys,suchastheJuly2000reportassessingdamagesinGash-Barkatoinstitutionsandfacilitiesintheadmin-istrati�e,educational,health,watersupplyandagriculturalsectors,andsec-tor-specificreports,suchastheSeptember2000sur�eydonebytheEritreaElectricAuthorityoftheMinistryofEnergyofMinesinBarentu,Teseney,AdiQuala,AdiKeihandSenafe .
82 . Eritreamadeseparateclaimsforthetwenty-threeindi�idualstruc-turesidentifiedintheCentralandWesternFrontPartialAwards(excludingtheTseronaPatriotsCemeteryandtheStelaofMatara) .33AstotheCommis-sion’smoregeneralfindingsregardingbuildingdestructionanddamageinele�ennamed�illagesandtowns,Eritreaassertedthatithadtopro�efour
31 In the course of the Group Number One damages hearings, Eritrea reduceditstotaldamagesclaimsbyapproximately450millionnakfaafterwithdrawingcertaine�identiarydocumentsandconfirmingthatothersweremissingfromtherecord .ThereductionsaffectedEritrea’sclaimsregardingtheBarentuZobaandSub-ZobaMinistryofAgriculture,BarentuTownAdministrationBuilding,BarentuZobaGash-BarkaMinis-tryofHealthOfficesandWarehouse,BarentuHospital,TeseneyMinistryofAgriculture,TokombiaMinistryofAgricultureandMolkiSub-Zobaschools .
32 TheCentralFronttotaldoesnotincludeEritrea’sclaimsfordestructionoftheStelaofMataraortheTseronaPatriotsCemetery,whichareaddressedseparatelyatSec-tionVI .E .NordoesthetotalincludeEritrea’sclaimfordamagesforninebuildingsinAwgaro,whichtheCommissionaddressesatSectionVI .H .
33 Eritreacombineditsclaimsonse�eralofthese23structuresinSenafe .EritreaaddressedthetwoSenafeElectricalAuthoritybuildingsinoneclaim;thethreeSenafeOldandNewTownAdministrati�eHeadquartersbuildingsinoneclaim;thetwoSenafeMin-istryofAgriculturebuildingsinoneclaim;andthethreeSenafeSub-ZobaAdministrati�eandResidentialbuildingclaimsinoneclaim .Accordingly,ofthetotalof201separateBuildingClaims,onlyse�enteenareforthe23separatelyidentifiedstructures .
542 ERITREA/ETHIOPIA
elementstobeeligibleforcompensation:(a)beforethewar,thestructuredidinfactexist;(b)thestructurewasdestroyedordamagedduringthewar;(c)itsdamage,destruction,etc .,wasunlawful;and(d)theamountclaimedisappropriatetomakethe�ictimwhole .
83 . Eritreadidnotattempttoquantify itsBuildingClaimsasoftheactualorapproximatedateofdamage .Instead,Eritreaquantifieditsclaimsforparticularbuildingsasof�arioustimes,basedone�idencerangingfromtheoriginalconstructioncost(typicallymultipliedby�aryingpost-warinflationrates)topost-warreconstructionorrepairestimatesatthen-currentprices .ThemajorityoftheEritreannakfaquantumfiguresdatefrom2005and2006,whenEritreawaspreparingitsBuildingClaimsforsubmissiontotheCom-missionandobtainingactualandestimateddamagefigures .The�astmajorityofthefigurespresentedbyEritreaareestimates,asthego�ernmentexplainedithasnotbeenabletoaffordthecostsofreconstructing,repairingandrestock-ingthebuildings .Asnotedpre�iously,Eritreadidnotcon�ertitsBuildingClaimsmadeinEritreannakfatoU .S .dollars .
2. Ethiopia’s Response
84 . EthiopiaobjectedgenerallytothescopeandmagnitudeofEritrea’sBuildingClaims,andchallengedEritrea’srelianceonpropertyin�entoriesandreconstructionestimatespreparedpost-warwithaneyetowardlitigationandpresentedwithoutsupportingdocumentation .
85 . Ethiopiachosetosubmitspecificdefensestoonlythefifteenhigh-est-�alue structures claimed by Eritrea, to “illustrate the e�identiary andanalyticalproblemswiththeseclaims .”34AccordingtoEthiopia,thesefifteenstructurestogetheraccountedfor83%ofthetotalindi�iduallyassesseddam-agesclaimedbyEritrea .Amongitsillustrati�eobjections,EthiopiacriticizedEritrea’sclaimsforcompensationfor100%ofthe�alueofpropertyallegedlylootedfromadamagedbuilding,forexampleinSenafe,wheretheCommis-sionlimitedlootingcompensationtoalowerpercentageandwhereEritreaadmittedthatlootinghadoccurredbeforedestructionofthebuildingitself .EthiopiaalsoobjectedtoEritrea’srequestsforthecostsofrepairingbuild-ingsthathadbeenlootedorstripped,inadditiontothe�alueofthelootedorstrippeditems .AstoEritrea’sestimates,Ethiopiaofferedexamplesofthefarlower�aluesitclaimedforEritrea’sdestructionofallegedlycomparablebuild-ingsinitsparallelCentralandWesternFrontclaims .
34 Ethiopia’sCounter-MemorialtoEritrea’sDamagesPhaseOneMemorial(Febru-ary15,2007),para .3 .5 .Thefifteenstructures includedtheStelaofMatara,addressedseparatelyinthisawardatSectionVI .E .
partxvii—FinalAWARD eritrea’sdamagesclaims 543
3. The Commission’s Conclusions
86 . In quantifying compensation for Eritrea’s Building Claims, theCommissionhasre�iewedthebasisande�idenceforeachofthe201indi-�idualclaims .Asforthetwenty-threestructuresspecificallyidentifiedandincludedintheCentralandWesternFrontPartialAwards,theCommissionbrieflyaddressesbelowtheclaims,defensesande�idenceonabuilding-by-buildingbasis .Ethiopia’sCounter-Memorialcontainedspecificdefensesforsixofthesetwenty-threestructures .
87 . Asforthemorethan175additionalbuildingsforwhichEritreapre-sentedclaimsundertheCommission’sbroadergeographicliabilityfindings,theCommissionisabletoincludeanamountforcompensationonlywhereEritreasubmittedreasonableandcredibleproofthattherele�antbuildingfallswithintherele�antliabilityfinding .Thisrequirede�idencethat:(a)therel-e�antbuildingexistedbeforethewar,intherele�anttown,�illageorsub-zoba;(b)thebuildingwasdamagedordestroyedduringthewar,inthetimeperioddesignatedintherele�antpro�isionoftheaward;(c)thedamageordestruc-tionwasunlawful,withinthefourcornersoftherele�antliabilityfinding;and(d)theamountwouldapproximatelycompensateforactualdamagesattherele�anttime,i .e .,applyingtheChorzów Factory testdiscussedabo�e .35
88 . Inre�iewingthee�idencesubmittedbyEritrea,theCommissionfoundawide�ariationinbothquantityandquality .Mostuseful—and,per-hapsunderstandably,mostrare—wasdocumentation,intheformofin�oicesorprofessionalbids,fortheactualorestimatedcostsofreconstruction,repairand restocking of damaged buildings . As in Ethiopia’s parallel claims forpropertydamage,theCommissionreliedongo�ernmentsur�eysundertakenduringorjustafterthewartoassessthedamagetoandfacilitatetherestora-tionofci�ilianser�ices(forexample,health,education,waterandelectricitysupply),ratherthantosupportpotentiallitigation .Anotherformofgenerally(butnotalways)crediblee�idencewasadetailedstatementfromawitnesswithfirst-handknowledge(forexample,aschoolofficialoracourtadministra-tor)describingtherele�antbuildingandthedestruction,lootingorstripping(whethertheactsortheresults),andattachingadetailedlistoflostpropertywith�alues .Incomparison,theCommissioncouldgi�elittleornoe�identiaryweighttopropertylistsorin�entoriesthatwereunsigned,undatedorother-wiselackingauthentication,ortopatentlyexaggerated�aluations .
89 . Aparticularnoteiswarrantedastocompensationfordamagetoordestructionofchurches,mosquesandotherreligiousbuildings .TheCommis-sionismindfulofthecentralroleofreligiousinstitutionsinthelifeofEritre-ans,andrecognizestheconcernanddistressmanycongregationsexperiencedfromthedesecrationofthoseinstitutions .Withregardtotheassessmentofthe�aluesofreligiousitemsdestroyedorlootedwhichmayha�euniquecul-tural�alue,theCommissiongenerallyacceptsthatthereligiousofficialswho
35 See para .24supra.
544 ERITREA/ETHIOPIA
attestedtothe�aluesoftheseitemswouldbebestpositionedtomakethose�aluations .
90 . WhileEthiopia’sdecisiontoofferspecificdefensestoonlyfifteenofEritrea’sindi�iduallyassessedclaims(includingonlysixofthetwenty-threebuildingsidentifiedintheliabilityAwards)isperhapsunderstandable,ithasmadetheCommission’staskofe�aluatingEritrea’s201BuildingClaimssig-nificantlymoredifficult .TheCommissionisleftwithonlythemostgeneralofdefenses,andnodefensi�ee�idence,forthe�astmajorityoftheseclaims .
91 . TotheextentEthiopia’sillustrati�edefensesraisedwithregardtothefifteenstructuresapplytootherBuildingClaims,theCommissionhastak-ensuchdefensesintoaccountinitsre�iew .Forexample,inappropriatecases,theCommissionacceptsEthiopia’sillustrati�eobjectiontoEritrea’spracticeofseeking100%ofthe�alueofpropertylootedorstrippedfromabuildingbeforethatbuildingwasdamagedordestroyed .WheretheCommissionlimitedEthi-opia’sliabilitytoapercentageofthedamagecausedbylootingorstrippingofbuildings,itwasbecausethee�idencedidnotpermittheexactapportionmentofresponsibility .Inafewinstances,discussedbelow,Eritreadidclaimforthe�alueofcontentslostwhenabuildingwasdestroyedordamaged,butforthemostpartEritreaexpresslyallegedthatEthiopiahadconductedorpermittedlootingandstrippingofstructuresbeforetherele�antdestructionordamage .Underthecircumstances,theCommissionhasappliedthepercentagefactorforlootingandstrippingintherele�antlocation,forexample,75%inTseronaTown,ratherthanaward100%ofthe�alueofthecontentsofasubsequentlydestroyedordamagedbuilding .
92 . Inmanyofitslootingandstrippingclaims,Eritreaincludedadam-agecomponentforrepairore�enreconstructionoftherele�antstructure,towhichEthiopiaobjected .Ontheonehand,EthiopiaiscorrectthatEritreacan-notfairlyusethedamagesphasetocon�ertaliabilityfindingforlootingandstrippingofabuildingintoliabilityforoutrightdestructionorseriousdam-age .TheCommissionwascarefultodistinguishitsliabilityfindingsinloca-tionswheresubstantialpropertydestructionanddamageoccurred,suchasSenafeTownandBarentuTown,fromlocationswherethee�idencesupportedliabilityonlyforlooting,suchasthe�illagesofTabaldiaandGergef .Ontheotherhand,thephotographic(andtestimonial)e�idenceatboththeliabilityanddamagesphasesshowedthatlootingandstrippingofroofs,doors,windowframesandotherstructuralelementsofabuildingcouldandoftendidcom-promisethestructuralintegrityofthebuilding .Inre�iewingthee�idenceinindi�idualclaimsforlootingandstripping,theCommissionhaslookedwithparticularcareatwhetherEritrea’sclaimsforestimatedbuildingrepaircostsarelinkedtothenatureandscopeofthelootingandstrippingthatoccurred .So,forexample,thecostsofre-roofingabuildingaftertheoriginalroofwasstripped,orthecostsofre-framingandplasteringwallsaftertheoriginalwin-dowsanddoorframeswererippedout,areallowable .Fartherremo�ed,andnotallowable,arecostsclaimedforexpandingorupdatingabuilding,adding
partxvii—FinalAWARD eritrea’sdamagesclaims 545
newwaterreser�oirsoutsidethebuilding,orreconstructingabuildingthathade�entuallycollapsedbecauseithadbeenexposedtotheelementswithoutrepair .
93 . As discussed abo�e at paragraph 30, the Commission does notacceptEthiopia’sdefensesbasedonanunreasonablynarrowinterpretationofwordssuchas“looting”and“stripping”intheCentralandWesternFrontliabilityfindings .TheCommissionwasnotexactandcouldnotha�ebeenexact in, forexample,distinguishingbetweenthe lootingandstrippingofbuildingcomponents .Wherethee�idenceshowedfrequentlootingofroofs,doors,windowframesandotherbuildingmaterials,theCommissiontendedtousetheword“stripping,”butitdidnottherebyexcludesuchactionswhenusingtheword“looting .”“Burning”ofastructureisonemethodofdamageanddestruction,butitdoesnotexcludeothermethods .
94 . Nor does the Commission accept, with the exception of SenafeHospital(discussedbelow),Eritrea’sclaimsforcompensationforthecostofbuildingorrentingsubstitutespacefollowingunlawfuldestructionofordam-agetoabuilding .In�irtuallyallsuchcases,thee�idenceregardingallegedlyleasedpropertywasnotfirmlyconnectedtothefunctionorser�icespre�i-ouslypro�idedinthedestroyedordamagedbuilding .Further,bynotinclud-ingamountsforsubstituterealestateintheFinalAwardsforeitherEritrea’sorEthiopia’sbuilding-relatedclaims,theCommissiontreatsthePartiesequally .
95 . Apreliminarywordisnecessaryoncon�ersionofEritrea’ssuccess-fulBuildingClaims fromEritreannakfa toU .S .dollars .TheCommissionhasfollowedadifferentpracticeherethanforEritrea’sothercompensationclaims .Thisisbecause,asnoted,Eritreadidnotsubmite�idenceofthe�alueofspecificbuildingsasofthedateofactualdamageordestruction,orsubmite�idencethatwouldallowtheCommissiontoestimatethat�alue .Instead,Eri-treainmostcasespro�idede�idenceoftheestimatedcostsinnakfatorepairorreconstructspecificbuildingsbetween2003and2006 .ThisisconsistentwithEritrea’spositionthatitlacked—and,inmostcases,stilllacks—sufficientfundstorepairorreconstructthosebuildings,orreplacelootedproperty .
96 . Accordingly,ratherthanapplyaflatpre-warERN:US$exchangeratetoEritrea’scompensationestimatesforlateryears(whenthenakfawasdepreciating),theCommissionhascon�ertedtheclaimstodollarsonabuild-ing-by-buildingbasisasoftheyearforwhichtherepair,reconstructionorreplacementcostisestimated .Todoso,theCommissionhasusedthea�erageannualofficialexchangerates,assetoutinparagraph42 .
97 . Thismathematicalprocess,whiletime-consumingtoapplytoeachofEritrea’s201BuildingClaims,ser�estwopurposes .First,ita�oidsthewind-falltoEritreathatwouldha�eresultedifasinglewartimeexchangerateof8 .8nakfaor9 .36nakfatotheU .S .dollarhadbeenusedtocon�ertestimatescalculated(contemporaneously)innakfainlateryearswhentheexchangerateexceededfifteennakfatotheU .S .dollar .Second,lookingtotheChorzów Fac-tory test,thisprocessbetterapproximatestheamountnecessarytoputEritrea
546 ERITREA/ETHIOPIA
inthepositionitwouldha�ebeeninbutforEthiopia’sunlawfuldestruction,damageandlootingofproperty,inlightofEritrea’spost-wareconomicinabil-itytorepair,reconstructandreplacethatproperty .Inthecurrencycon�er-sionprocess,aswellasinothercalculations,theCommissionhasroundedamountstoa�oidsuggestinggreaterprecisionthanthee�idenceallowed .
98 . The Commission first addresses the Central Front and then theWesternFrontBuildingClaims .TheCommissionsetsoutrelati�elyfullanal-ysesofEritrea’sclaimsonthetwenty-threespecificstructuresidentifiedintheCentralandWesternFrontPartialAwards,inparticulartheSenafeTownbuildings,aswellasotherbuildingclaimsthatser�easmodelsforbroadcat-egoriesofclaims .TheCommissionhasusedthesameanalyticalstructureinre�iewingalloftheotherindi�idualclaims,mostofwhicharediscussedingroupsforthesakeofeconomy .Withinthegroups,theCommissionoffersexamplesofsuccessful,unsuccessfulandpartiallysuccessfulclaimsbasedonthee�idence .
4. The Central Front
99 . OntheCentralFront, theCommissionfoundEthiopia liableforinflictingorpermittingdamagetobuildingsinTseronaTown,Serha�illageandSenafeTown:
—For75%ofthetotaldamagecausedbythelootingandstrippingofbuild-ingsinTseronaTownpermittedwhileitoccupiedthetownfromlateMay2000untillateFebruary2001;
—ForthedestructionoftheSub-ZobaAdministrationBuilding,theSub-ZobaHealthCenter,andtheWarsaiHotelinTseronaTown;
—For70%ofthetotaldamageitinflictedontheinfrastructureofthe�illageofSerhaduringitsoccupationfromMay1998throughFebruary2001;
—For75%ofthetotaldamagecausedbythelootingandstrippingofbuild-ingsinSenafeTownpermittedduringitsoccupationbetweenMay26,2000andJune2001;and
—Forthedestructionoforse�eredamagetothirteenmajorstructuresinSenafeTownduringitsoccupationofthetown:theElectricalAuthor-ity(twobuildings);theMinistryofAgriculture(twobuildings);theNewTownAdministrati�eHeadquarters;theOldTownAdministrati�eHead-quartersandOfficesWest;theOldTownAdministrati�eHeadquartersandOfficesEast;theSenafeSecondarySchool;theSenafeHospital(at90%ofthedamage);theSub-ZobaAdministrati�eandResidentialcom-pound(threebuildings);andtheTelecommunicationsBuilding .36
36 PartialAward,CentralFront,Eritrea’sClaims2,4,6,7,8&22betweentheStateofEritreaandtheFederalDemocraticRepublicofEthiopia(April28,2004)[hereinafterPartialAwardinEritrea’sCentralFrontClaims],dispositif,SectionV .D,quotedinfullabo�eatpara .48 .
partxvii—FinalAWARD eritrea’sdamagesclaims 547
100 . Eritreaclaimeddamagesofapproximately413millionnakfaplusUS$3millioninconnectionwithitsCentralFrontBuildingClaims .Forindic-ati�epurposesonly,aftercon�ertingthenakfaamountattherounded2005exchangerateofERN15:US$1,thetotalclaimedisapproximatelyUS$30mil-lion .
101 . Tserona Town.ForTseronaTown,theCommissionfoundEthiopialiableforthedestructionoftheSub-ZobaAdministrati�eBuilding,theSub-ZobaHealthCenter,andtheWarsaiHotel,aswellasfor75%ofthetotaldam-agecausedbylootingandstrippingofbuildingsinTseronaTownduringEthi-opia’soccupationfromlateMay2000untillateFebruary2001 .Afterapplyingthe75%factor,Eritreasoughta totalofERN70,617,456plusUS$11,719incompensationforitsTseronaTownBuildingClaims .
102 . Sub-Zoba Administrative Building.EritreasoughtcompensationofERN13,583,136forthedetonationandlootingoftheSub-ZobaAdministra-ti�eBuilding,whichwasthemainadministrati�ecenterforTseronaTownandfifteenkebabisser�ing36,000inhabitants .Insupportoftheclaim,Eritreaofferedestimatesdatingfrom2005forrubbleclearing,repairingdamagetothedetonatedadministrati�ebuildingandse�eralstrippedstaffresidences,replac-ingbuildingcontents,andtherentalofatemporarysubstituteoffice .Eritreaalsoincludedaconstructioncontractandplansreflectingthattheadministra-ti�ebuildingwasconstructedin1996–1997for583,896birr .Ethiopiaofferednospecificdefense .Onbalance,theCommissionispreparedtoawardcom-pensationfor100%oftherubbleclearing;only50%oftheestimatedcostofrebuildingtheadministrati�eofficebuilding,because,e�enwithreasonableinflation, theestimate isexcessi�elygreater thantheoriginalconstructioncost;and,applyingthepercentageforlootingandstrippinginTseronaTownfromtheCentralFrontPartialAward,75%ofthe�alueoflootedproperty,includingdesksandchairsactuallyreplacedin2002 .TheCommissionawardsnocompensationfortemporaryofficerentalorforallegedstrippingdamagetostaffresidences,asthee�idenceofrepaircostswasnotsufficientlylinkedtolootingorstripping .Applyingthe2005exchangerateforallamountsawardedexceptthedesksandchairsreplacedin2002,forwhichthe2002exchangerateapplies,theawardequalsUS$305,000 .
103 . Sub-Zoba Health Center. Eritrea sought compensation of ERN18,153,295forthedetonationandlootingoftheSub-ZobaHealthCenter,whichser�edacatchmentareaof50,000persons .Basedonthecontractputintoe�i-dence,theHealthCentercost1 .6millionbirrtoconstructin1996 .TheheadofengineeringfortheMinistryofHealthpro�idedanestimateforrebuildingcostsofERN14,065,895,whichhebasedonthecostsofbuildingastandardhealthcenterin1998ofERN4,688,631andthetriplingofconstructioncostsby2006 .Thee�idencealsoincludeda2006in�entoryof lootedequipmentwithestimated�alues,leadingtoatotallootingclaimofERN3,307,400 .Theestimatesdatefrom2005and2006,atwhichtimeEritreahadnotyetbeenabletostartreconstruction .Ethiopiaofferednospecificdefense .Onbalance,
548 ERITREA/ETHIOPIA
theCommissionispreparedtoawardcompensationfor100%oftheestimatedcostofrubbleclearing;only50%ofthecostofreconstruction,because,e�enwithreasonableinflation,theestimateisexcessi�elygreaterthantheorigi-nalconstructioncost;and75%oftheestimated�alueofthelootedcontents .Applying2005and2006exchangerates,theawardequalsUS$670,000 .
104 . Warsai Hotel.TheWarsaiHotelwasoriginallybuiltin1997–1998with a loan from the Eritrean Disabled Fighters’ Association for approxi-mately467,000birrforconstructionand97,000birrforfurnishings .EritreasoughtERN3,925,493forthelooting,strippinganddetonationoftheHotel:ERN2,189,938forclearingrubbleandrebuilding,basedon2001specifica-tionsfromtheFightersAssociation;ERN543,455toreplacefurnishingsandkitchenequipmentasof1998–1999;andERN1,192,100forlostre�enuefrom2000to2006 .Eritreasubmittedsubstantiale�idence,includingblueprintsandreceipts,supportingtheoriginalcostsofbothconstructionandfurnishings,includinga28,000birrItalianespressomachine .Ethiopiaofferednospecificdefense .TheCommissionconsiderstherebuildingclaimreasonable;theesti-mateforreconstructionin2001isfourtimesgreaterthantheoriginalcostin1997–1998,whichisamorerealisticinflationfactorthanthefactoroftenusedinotherinstances .TheCommissionalsoconsidersthepropertyreplacementclaimreasonable;Eritreapresentedin�oicesfortheactualreplacementin2001ofthehotelo�enandmixeratERN366,980,whichisalargepercentageofthetotalERN543,455claimed .Thelimitedeconomice�idencedidnotsupporttheclaimforlostre�enue .Afterapplyingthe75%TseronaTownlootingandstrippingpercentagetothepropertyreplacementclaim,andthenapplyingtherele�ant1998and2001exchangerates,theawardequalsUS$270,000 .
105 . Other Tserona Town Building Claims.TheCommissionnextexam-inesEritrea’scompensationclaims,totalingapproximatelyERN35millionplusUS$12,000,for75%ofthedamageallegedlycausedbythelootingandstrippingoffourteenotherbuildingsinTseronaTownpermittedbyEthiopiafromlateMay2000untillateFebruary2001 .Theseconsistofclaimsfordam-agetotheTownAdministrationBuilding,PoliceStation,Courthouse,WaterSupply,GeneratorHouse,BerheTsaedaElementarySchool, junior school,Faith(Imnet)MissionElementarySchool,MinistryofAgriculture,EritreanReliefandRefugeeCommission(“ERREC”)office,marketplace,Shell/Agipstation,GamiaMosqueandDebreMichaelOrthodoxChurch .EthiopiaofferednospecificdefensetoEritrea’sclaimsonthesebuildings .
106 . Aswithothertownsand�illages,discussedbelow,theCommis-sionhasdeterminedtoawardall,noneorsomeoftheamountsclaimedbyEritreaforeachofthesefourteenbuildings .Atoneendofthespectrum,theCommissionfindstheclaimsforthePoliceStation,Courthouse,Faith(Imnet)MissionElementarySchool,ERRECofficeandShell/Agipstationreasonablysupportedbywitnessstatementsanddocumentarye�idence .Ha�ingdeniedtheclaimfordetonationoftheCourthouseattheliabilityphase,theCom-missionnotesthatEritrea’sclaiminthisdamagesphasewaslimitedtoERN
partxvii—FinalAWARD eritrea’sdamagesclaims 549
325,316(US$32,062at1997and2005exchangerates)forlooteddoors,win-dowsandfurnishings .
107 . Attheotherendofthespectrum,theCommissiondisallowstheclaims for theTseronaTownAdministrationBuildingandDebreMichaelOrthodoxChurch .AsfortheAdministrationBuilding,EritreasoughtERN12,697,125forlooting,strippingandallegedlyassociateddamage,anamountsomefourhundredtimestheoriginalcostofthebuildingin1996(33,281birr)basedonEritrea’sdocuments .Theclaimwasclearlyonefortotalreconstruc-tionandimpro�ementofanoriginallymodestbuilding,withEritreamak-ingnoefforttoconnectthereconstructioncoststotheeffectsoflootingandstripping .E�enthelootingclaimsappearedexaggerated:threephotocopiersatERN350,000each,andtwotypewritersatERN250,000each .AsfortheDebreMichaelOrthodoxChurch,whichEritreadescribedastheonlybuildingremainingintactinTseronaaftertheEthiopianoccupation,Eritreaproducednoe�idenceastothe�alueoflooteditems,butinsteadoffered“suggestions”basedontheestimated�aluesofthecontentsofOrthodoxchurchesinSenafeandSerha .
108 . In the middle of the spectrum, the Commission discounts theclaimsfortheMinistryofAgriculture,juniorschoolandGamiaMosqueby50%(aswellasapplyingthe75%factorforlootingandstrippingintheliabil-ityAward) .TheCommissionconsidersthee�idenceofferedtosupporttheclaimfortheMinistryofAgriculture—in�entorylistspreparedin2005withnounderlyingdocumentarysupportwhatsoe�er—tobeinsufficienttosup-portthecomparati�elylargeclaimformorethansixmillionnakfa .TheCom-missionisnotcon�inced,inthecaseofthejuniorschool,thatpost-strippingrepairswouldcosttwicethetotalcostofconstructingtheschoolin1999or,inthecaseoftheMosque,thatrepaircostswouldequalthoseforthesubstan-tiallylargerAlsadiaqMosqueinSenafe .TheCommissionhasalsocorrectedtheamount for theTseronaBerheTsaedaElementarySchool,because thedocumentarye�idencecombinedclaimsforthatschoolandtheFaithMissionElementarySchool .TheCommissionincludescompensationfortheclaimsfor the Water Supply and Generator House facilities only in the amountsdirectlyattributabletolooting(lootedpipesandpumps,andelectricitypolesandwire,respecti�ely)andnotdonatedbyUNICEFandUNMEEinpost-warreconstructionprojects,apparentlyonanon-reimbursablebasis .Asforthedestroyedmarketplace,theUnitedNationsDe�elopmentProgram(“UNDP”)pro�idedasubstantialrehabilitationgrant;absentanyindicationthatEritreahadtoreimbursetheUNDP,theCommissionlimitscompensationto75%oftheamountcarriedbytheSub-Zoba .
109 . TheCommissionawardsEritreacompensationintheamountofUS$775,000for75%ofthetotaldamagecausedbythelootingandstrippingofthebuildingsinTseronaTownlistedabo�eduringtheEthiopianoccupa-tion .Addingtheamountsawardedforthethreestructuresidentifiedinthe
550 ERITREA/ETHIOPIA
liabilityAward, thetotalawardedforEritrea’sBuildingClaimsinTseronaTownisUS$2,020,000 .
110 . Serha Village.TheCommissionfoundEthiopialiablefor70%ofthetotaldamageinflictedontheinfrastructureofthe�illageofSerhadur-ingitsoccupationfromMay1998throughFebruary2001 .Afterapplyingthe70%factor,EritreasoughtcompensationofERN21,860,300plusUS$54,777fordamageinflictedontenstructuresinSerha:theHealthStation,Admin-istrationBuilding,Police and ImmigrationCompound,GeneratorHouse,elementaryandjuniorschool,MaiTerraElementarySchool,DisabledFight-ersBakeryandMarket,openairmarket,Shell/AgipstationandSt .Mary’sOrthodoxChurch .EthiopiaofferednospecificdefensetoEritrea’sclaimsonanyofthesebuildings .
111 . TheCommissionfindstheclaimsfortheAdministrationBuild-ing,elementaryandjuniorschool,openairmarket,Shell/AgipstationandSt .Mary’sOrthodoxChurchreasonablysupportedbythewitnessstatements,claimformsanddocumentarye�idence .TheCommissiondiscountstheclaimsforthePoliceandImmigrationCompoundandreconstructionoftheHealthStationbyapproximately50%(aswellasapplyingthe70%factorintheliabilityAward),becauseofunreasonablyinflatedreconstructioncosts .InthecaseoftheHealthStation,Eritrea’sowne�idenceshowedthattheoriginalconstruc-tioncostswereERN323,650andthecostsofbuildingahealthstationtripledafterthewar,whichwouldsupportcompensationofERN970,950ratherthantheERN1,986,600sought .TheCommissionalsodiscountstheERN6,090,000claimfor the lootedGeneratorHouseby50%,because theCommission isnotcon�incedthatthecostsofreplacingageneratorand800telephonepoleswouldincreasebytentimesbetween1997and2005 .AsforEritrea’sclaimforERN1,374,327for70%ofthecostsforrehabilitationandreplacementoffurniturefortheMaiTerraElementarySchool,theCommissionreducescom-pensationbytheERN790,436donatedbytheLutheranWorldFederation,apparentlywithoutanyrequirementofrepayment .Finally,turningtoErit-rea’sclaimforlooting-relateddamagestotheDisabledFightersBakeryandMarket,theCommissiondisallowstheclaimforERN734,623worthoflooteditemsbelongingtoMerkebConstructionCo .forfailureofproof:thewitnessstatementfromtheFightersAssociationidentifiedanothercontractor,andtheMerkebin�entorylistwasnotauthenticatedinanyway .
112 . TheCommissionawardsEritreacompensationintheamountofUS$990,000for70%ofthedamageinflictedonthebuildingslistedforSerhaduringtheEthiopianoccupation .
113 . Senafe Town.SenafeTownwasamajorfocusoftheCommission’sfindings of property destruction and damage in the Central Front PartialAward .TheCommissionfoundEthiopialiablefortheunlawfuldestructionoforse�eredamagetothirteenspecificmajorstructuresduringitsoccupationofthetownbetweenMay26,2000andJune2001,aswellasfor75%ofthetotaldamagesufferedinthetownfromlootingandstrippingofbuildingsin
partxvii—FinalAWARD eritrea’sdamagesclaims 551
thetownduringtheoccupation .Afterapplyingthe75%factor,EritreasoughtatotalofERN320,375,509plusUS$2,494,009incompensationforitsSenafeTownBuildingClaims .
114 . TheCommissionturnsfirsttothethirteenspecificmajorstruc-tures,assetoutintheCentralFrontPartialAward:theElectricalAuthority(twobuildings),MinistryofAgriculture(twobuildings),NewTownAdmin-istrati�eHeadquarters,OldTownAdministrati�eHeadquartersandOfficesWest,OldTownAdministrati�eHeadquartersandOfficesEast,SenafeSec-ondarySchool,SenafeHospital(at90%),Sub-ZobaAdministrati�eandResi-dentialcomplex(threebuildings)andTelecommunicationsBuilding .
115 . Electrical Authority.EritreasoughtUS$500,000 for thecostsofrestoringthetwobuildingsoftheSenafeElectricAuthorityandrelatedequip-ment .Thisamountwasbasedona2000reportbyanEritreaElectricAuthoritydamageassessmentteam,andisalsotheamountofa2001WorldBankloantorestoreelectricser�icesandstructuresinSenafe .Ethiopiadidnotpro�ideaspecificdefense .Inlightofthedocumentarysupportpro�idedbyEritrea,theCommissionawardsthefullUS$500,000 .Eritrea’sunliquidatedclaimforcompensationforunspecifieden�ironmentaldamageisdenied .
116 . Ministry of Agriculture. Consistent with the importance of theagriculturalsectorinEritrea(aswellasinEthiopia),EritreaputsubstantialemphasisonitsclaimsforlossofMinistryofAgriculturebuildingsandfacili-ties .ForSenafeTown,EritreasoughtcompensationtotalingERN52,128,765forthedestructionandlootingofthetwoMinistryofAgriculturebuildingsidentifiedintheCentralFrontPartialAward,namelythecentralofficeandthe�eterinaryclinic,aswellasforanurserystation,mainwarehouseandsatellitewarehouses,poultryfarm(actuallyastoragefacility),meetinghallandforesta-tionoffice .Eritrea’smaine�idencewasapaperpreparedinAugust2005byanofficialoftheMinistryofAgricultureforSenafeSub-Zoba,listingdestroyedanddamagedbuildingsanditemsandtheirprices;noreceiptsorotherdocu-mentswereattached .Ethiopiadidnotpro�ideaspecificdefense .
117 . Turning first to the two Ministry of Agriculture buildings sin-gledoutintheCentralFrontPartialAward,theCommissionispreparedtoaward100%ofthereconstructioncostsestimatedbyEritreaasof2005:ERN2,760,915forthecentralofficeandERN3,760,915forthe�eterinaryclinic .Although Eritrea’s quantum e�idence was slim, these amounts were con-sistentwiththosepro�idedandsupportedforbuildingsofsimilarsizeandimportance .Asforthelootedcontents,whichEritreadescribedasha�ingbeen“remo�edbeforethebuildingsweredetonated,”37theCommissionawards75%ofthe�alueclaimed,inthecombinedamountofERN4,798,817 .TheCom-missionconsiderstheitemsandpriceslistedbytheMinistryofAgricultureofficialinhiswitnessstatementtobereasonable,includingfourtractorsworthERN500,000eachlootedfromthecentraloffice .
37 ERDamagesGroupOneMemorial,p .II-49 .
552 ERITREA/ETHIOPIA
118 . Eritrea’sclaimsrelatedtotheadditionalMinistryofAgriculturebuildingsposese�eralproblems .Gi�enthatthesebuildingsarenotalllocat-edinthe�icinityofthecentralofficeand�eterinaryclinic,theCommissionappreciatesthatEritrealimiteditsclaimsto75%ofdamagesallegedlycon-nectedtolootingandstrippingoftheadditionalbuildings .Howe�er,thereareproblemswithproofofbothcausationandquantum .InsofarasEritreasoughtcompensationforthecostsofrepairingthebuildings,whichcostsweresup-portedonlybysinglelineitemsintheMinistryofAgriculturereport,Eritreafailedtoconnectstructuraldamagetolootingandstripping .Theamountswerealsohigh:EritreaclaimedERN2,720,600(equaltotheclaimforthecen-traloffice)torepairthepoultryfarm/storagefacility,describedbyEritreaasacementblockandplywoodbuilding .TherearealsolimitstoEritrea’slootingclaimsforthecontentsoftheadditionalbuildings .AlthoughtheCommis-sionacceptsEritrea’sexplanationthattheMinistryofAgriculturehadfilleditsmainwarehouseastherainyseasonapproachedinMay2000andsohadrentedpri�atewarehousesaroundSenafeTown,thefactremainsthatErit-readidnote�enindicatehowmanysuchwarehousesexisted,muchlesswhattheircontentswereorwhathappenedtothosecontents .Onbalance,theCom-missionispreparedtoawardanadditionalERN8,400,000forthelootingofMinistryofAgriculturefacilitiesinSenafeTown,whichrepresents50%oftheestimated�alueofcontentslootedfromthemainwarehouse,nurserystationandpoultryfarm/storagefacility .
119 . The total compensation awarded for the Ministry of Agricul-turebuildingsinSenafeTown,whencon�ertedatthe2005exchangerate,isUS$1,300,000 .
120 . Old Town and New Town Administration Buildings.Atthedamag-esphase,EritreacombineditsclaimsfortheNewTownAdministrati�eHead-quarters,OldTownAdministrati�eHeadquartersandOfficesEast,andOldTownAdministrati�eHeadquartersandOfficesWest,whichwereseparatelyidentifiedintheCentralFrontPartialAward .EritreasoughtatotalofERN108,351,929forthedestructionofthesebuildingsandthelootingoftheOldTownbuildingsand,separately,thelootingoftheWaterFacilityOfficeinsidetheOldTowncomplex .NeithertheOldTownnortheNewTowncomplexhasbeenrebuilt .Inwitnessstatements,theheadengineerforDebubZobaand his predecessor pro�ided per meter estimates for rubble clearing andreconstruction,leadingtoestimatesfortheentirecomplexofERN632,000forrubbleclearingandERN20,040,000forreconstruction .Althoughblue-printsandotheroriginalconstructiondocumentswerenolongera�ailablefortheOldTownbuildings,whichwerebuiltintheItaliancolonialstyleintheearly1900s,Eritreaestimatedrebuildingcostsbasedonsquarefootage .ConstructiondocumentsreflectedthattheNewTowncompoundwasunderconstructionandwas75%completewhendemolishedduringtheEthiopianoccupation . Eritrea pro�ided �arious in�entories supporting its claims forapproximatelyERN55millionforthecontentsoftheOldTownbuildings
partxvii—FinalAWARD eritrea’sdamagesclaims 553
andERN27millionforthecontentsoftheWaterFacilityOffice .Initsspecificdefense,EthiopiachargedEritreawithinflatingitsclaimsforrebuildingcosts(EthiopiacompareditsclaimforrebuildingacomparablebuildinginZal-ambessaforUS$38,314)andreplacinglostitems(EthiopianotedthatEritrea�aluedaUS$8,000LeicaTotalStationopticalinstrumentatsomeUS$80,000) .EthiopiaalsoobjectedtoEritrea’sseeking100%ofrebuildingcostsforthe75%completeNewTownbuildings,aswellas100%ratherthan75%oflootingandstrippinglosses .
121 . TurningfirsttotheNewTownAdministrati�eHeadquarters,theCommissionfinds therebuildingestimateofERN8milliontobereason-able,andsoispreparedtoawardEritrea75%orERN6,000,000 .Therewasno claim for looting associated with the New Town complex, presumablybecauseitwasunderconstructionandnotinuse .TheCommissionawardsERN11,180,000forrebuildingtheOldTownAdministrati�eHeadquarters,recognizingthatitshistoriccharactercannotberecreated .Thelootingclaimswerepatentlyexcessi�e .Forexample,examinationofthein�entoryoflootedelectricalgoodsre�ealedthatthepreparerapparentlyconflatedunitpricesandtotalprices, leadingtoa�aluationofERN30,000,000for60040-wattlamps;whencorrected,thetotalforelectricalgoodsisclosertoERN200,000ratherthanERN49,000,000 .Aseparatein�entoryoflooteditems,preparedbytheSenafeTownAdministrator,didnotsufferfromsuchasystematicmis-take .Indeed,theCommissionappreciatesthattheadministratortookcarenottoincludeentriesforstrippedroofsanddoors,whichwereincludedintheestimateofrebuildingcosts .TheCommissioncanonlyconcludethattheERN800,000priceonthisin�entoryfortheLeicaTotalStation(byfarthehighestunitpriceonthefour-pagein�entory)wasatypographicalmistake,andreducethetotalbyERN720,000 .Thethirdin�entoryofferedbyEritrea,whichlistedand�aluedthepipes,�al�es,toolsandotherequipmentlootedfromtheWaterFacilityOfficewarehouse,alsoappearsreasonable .TheCom-missionispreparedtoacceptthetotal�aluationofERN6,769,543basedon2001prices,butnottomultiplyitbyfourasEritrearequestedbeforeapplyingthe75%lootingfactor .
122 . TheCommissionawardstotalcompensationforthedestruction,lootingandstrippingoftheNewTownandOldTownAdministrati�eHead-quartersandOffices,includingcostsofrebuildingat100%fortheOldTownbuildingsand75%fortheNewTownbuildings,andcostsofreplacinglooteditemsat75%,ofUS$2,100,000,whencon�ertedattheapplicable2000and2005exchangerates .
123 . Senafe Secondary School.Justbeforetheoccupation,theSenafeSec-ondarySchoolser�ed2,500–3,000highschoolstudentsandwasintheprocessofexpandingtohouseajuniorschool .EritreasoughtERN14,831,230ascompen-sationforEthiopia’sdestruction,lootingandstrippingofthecomplex,includingamountsfortheactualrepairoftheseniorschoolandestimatedreconstructionofthejuniorschool .Ethiopiadidnotpresentaspecificdefense .
554 ERITREA/ETHIOPIA
124 . TheCommissionfindsthee�idencesupportingthisclaimtobeofmixedquality .EritreasubmittedacertificateofpaymentfortherepairstotheSecondarySchool,whichwerecompletedin2004atareasonablecostofERN372,628;thecertificatereflectedthattheworkfocusedonreplacingstrippedwindows,doorsandroofingandrelatedstructuraldamage .EritreaalsosoughtERN1,579,822forfurnitureandsuppliesactuallyreplacedbetween2002and2004,andanotherERN2,678,100astheestimatedcostin2006ofcompletingthereplacementprocess .Lessreasonablewasthecomparati�elylargeclaimofERN7,000,000torebuildthejuniorschoolexpansion;thewitnessstate-mentsreflectedthatconstructionwasonlyapproximately75%complete,yettheestimatewasfortwicetheoriginalfullcontractpriceofERN3,572,252 .TheCommissionlimitsthecompensationforthejuniorschoolprojectto75%oftheoriginalprice,orERN2,679,189 .TheCommissiondeniesEritrea’sERN3,105,650claimforpropertyallegedlyleftbythecontractoratthesite,because,e�enassuminganecessarylinkwiththeliabilityfindings,thedocumentarye�idencedidnotsupporttheamountclaimed .Intotal,aftercon�ersionofnakfaamountsattheapplicable2000,2003,2004and2006exchangerates,theCommissionawardsEritreacompensationofUS$520,000forthedestruction,lootingandstrippingoftheSenafeSecondarySchool .
125 . Senafe Hospital.SenafeHospitalwasanimportanthealthfacility,whichser�ed,accordingtoEritrea,acatchmentof100,000people .Eritreawasnotabletoreconstructthehospital,butdidbuildatemporaryhospitalin2003 .EritreasoughtERN70,120,652plusUS$460,369for90%oftheesti-matedcostsofrebuildingandrestockingthehospitalandconstructingthetemporaryhospital .Eritreapresenteddocumentarye�idencesupportingtheactualcostsofthetemporaryhospitalandthepreparatoryrubbleclearingforrebuildingthehospitalproper .Eritrea’se�idenceforthecostsofrebuildingconsistedonlyoftwoestimatesofsixty-fi�eandse�enty-fi�emillionnakfainwitnessstatements,onefromtheheadofengineeringoftheMinistryofHealthandonereportedlyfromaconstructioncompany;neitherestimatewassupportedbyanybidorcontractdocuments,ore�enabreakdown .Ethio-piaputforwardastrongdefense,arguingthattherebuildingestimateswere�astlyinflatedcomparedtoEritrea’s1995constructioncostsofapproximately1,000,000birrtobuildanextensionofSenafeHospitalandtoEthiopia’sownclaimofUS$363,586forreconstructionofthehospitalinZalambessa .Ethio-piaalsochargedEritreawithfailingtomitigate itsdamagesbyexpendingERN2,451,836forthetemporaryhospitalratherthanbuildinganewone,andobjectedtoEritrea’sclaiming90%ratherthan75%ofthecostsofreplacinglootedproperty .
126 . As in other instances, the Commission agrees with Ethiopiathattheproperdiscountrateforlooting,whichEritreadescribesasha�ingoccurredbeforedestructionofthebuilding,is75%ratherthan90% .TheCom-missiondoesnot,howe�er,agreethatEritreafailedtomitigateitsdamagesbyconstructingthetemporaryhospitalforsometwomillionnakfa .E�enif,as
partxvii—FinalAWARD eritrea’sdamagesclaims 555
discussedbelow,Eritrea’sestimatesforrebuildingthecomprehensi�efacili-tiesofSenafeHospitalweretoohigh,theCommissioncannotfaultEritreaforspendingERN2milliontopro�idehealthser�icesurgentlyneededbyalargecommunity .Inlightofthisspecialneed,theCommission,inthisoneinstance,awardsEritrea’scostsofpro�idingtemporarysubstitutefacilitiesforadestroyedordamagedbuilding .
127 . Ha�ingjustnotedtheimportanceofhealthser�icesintheSenaferegion,theCommissionfindsitselfinadifficultpositioninassessingcom-pensationfordamagetoSenafeHospital .Absentanydocumentarye�idenceunderlyingEritrea’sestimatesofERN65,000,000andERN75,000,000,theCommissionreturnedtothefactorssetoutinthewitnessstatementoftheMinistryofHealth’sheadofengineering .Asdiscussedabo�einconnectionwiththeTseronaTownhealthcenter,hetestifiedthatthecostsofbuildingastandardhealthcenterin1998wereERN4,688,631andconstructioncosts(at least inhissector)hadtripledby2006 .AssumingthatSenafeHospitalhadtwicethecapacityofahealthcenter(theTseronaTownhealthcenterhadacatchmentof50,000,comparedtoSenafeHospital’s100,000),reasonablerebuildingcostswouldbetwicethatfortheTseronaTownhealthcenter,orapproximatelyERN28,000,000 .
128 . In sum, the Commission awards compensation of 90% of theactualcostsofbuildingthetemporaryhospitalandclearingrubbleforrecon-struction,90%oftheestimatedreconstructioncosts,and75%oftheexpenseof post-looting restocking . Applying the applicable 2003, 2005 and 2006exchangerates, theCommissionawardsEritrea totalcompensation in theamountofUS$2,575,000 .
129 . Sub-Zoba Administrative and Residential Complex. The SenafeSub-ZobaAdministrati�eOfficeconsistedofse�eraladministrati�ebuildingsaroundapublicsquareandaseparateresidence,allbuiltintheoldItalianstyleliketheOldTownAdministrati�ebuildings .Eritrea’sclaimforERN17,514,713for thedestruction, lootingandstrippingof theSub-ZobaAdministrati�ebuildingswasbasedone�idencesimilartothatfortheTownAdministrati�ebuildings .EritreabaseditsestimateforERN9,296,000inreconstructioncostsonsquaremeterfigurespro�idedbytheheadengineerforDebubZoba .Erit-reaalsosubmittedin�entoriesoflooteditemspreparedbyanadministrati�eofficer,andbyrepresentati�esofERRECandtheNationalUnionofEritreanWomen(“NUEW”),whichhadoffices inthecomplex .Ethiopiaofferednospecificdefense .Onbalance,theCommissionispreparedtoawardcompensa-tionofERN730,000forrubbleclearingandERN8,632,000forrebuildingtheSub-ZobaAdministrati�ecomplex,recognizingitshistoriccharactercannotberecreated,aswellas75%oftheERN1,598,450estimateforlootedproperty .Toa�oiddouble-counting,theCommissionawards75%ofonlyone-halfofthe�alueclaimedfortheitemsonthein�entoriespreparedbyERRECandNUEW,whichincludedbuildingmaterials .ThetotalawardfortheSenafeSub-
556 ERITREA/ETHIOPIA
ZobaAdministrati�eOfficeisUS$815,000,aftercon�ersionattheapplicable2005exchangerate .
130 . Telecommunications Building.ThelastSenafeTownbuildingsin-gledoutintheCentralFrontPartialAwardwasthenewtwo-storyTelecom-municationsBuilding,whichwasbeinghandedo�ertotheTelecommunica-tionsSer�iceofEritrea(“TSE”)bythecontractorinMay2000 .Constructionof thebuildinghadtakeneighteenmonthsatacostofERN3,520,000 .AstheCommissionrecallsfromthemanyphotographspro�idedintherecordanddisplayedattheliabilityhearing,theTelecommunicationsBuildingwasdestroyedbydetonation,strippedandlooted .Inthedamagesphase,Eritreasubmittedextensi�ee�idencesupportingitsclaimforERN24,276,412andUS$1,441,241 .Inadditiontothecostsofrebuildingandre-fittingthebuilding,Eritreasoughtcompensationforthecostsofreplacingthedestroyednetworkinfrastructureandcompletingthelootedlocalloopupgrade,forlostre�enue,andforthe�alueofcontractorpropertyleftatthesite .EthiopiaobjectedtoEritrea’sinfrastructureclaims,ongroundsthattheyfelloutsidetheCommis-sion’sliabilityfinding .EthiopiaalsochargedEritreawithinflatingboththerebuildingandpropertyreplacementcosts .
131 . TheCommissionfindsEritrea’sclaimforrebuildingcoststobecredibleandreasonable .Eritreapresentedtwosimilarestimatesforrebuildingcosts:onefromtheoriginalcontractorhimself,whotestifiedthathewouldchargenolessthanERN8,000,000–9,000,000forrebuildingthestructureasof2005;andtheestimateofERN7,617,500plusUS$130,000fromtheTSE .Bothwereapproximatelydoublethepre-warcostofERN3,520,000,whichtheCommissionconsidersreasonable .Accordingly,theCommissionispreparedtoawardthefullERN7,617,500plusUS$130,000soughtforrebuildingcosts,aswellasthefullERN1,700,000ofestimatedrubbleclearingcosts .
132 . Theremainingclaimsare less straightforward .First, as for the�alue of the contents looted from the Telecommunications Building, theestimatedreplacement�aluespro�idedbytheTSEestimationwereinflated .AspointedoutbyEthiopia,EritreaspecificallyclaimedUS$148,841as thereplacement�aluein2000ofcertainradiotransmissionequipmentpurchasedforonlyUS$5,000oneortwoyearsearlier,andotheritemsinthesame�alu-ationlistalsoshowedsimilar,iflessdrastic,disparities .Tocompensateforthisinflation,theCommissionreducesEritrea’slootingclaimbyhalfbeforeapplyingthe75%lootingfactor .Second,asforEritrea’sclaimsfordamagetothenetworkinfrastructureandthelocalloopupgrade,neitherofwhichwassituatedintheTelecommunicationsBuilding,theCommissionagreeswithEthiopiathatthesefalloutsideoftheTelecommunicationsBuildingclaim .TheCommissiontreatsthemasseparatelootingandstrippingclaims .Findingthatthesetwoclaims,liketheTelecommunicationsBuildinglootingclaim,reflectedunreasonableinflation,theCommissionagainreducesthembyhalfbeforeapplyingthe75%lootingfactor .Thirdandfourth, theCommission
partxvii—FinalAWARD eritrea’sdamagesclaims 557
deniesEritrea’sclaimsforlostre�enueandforthecontractor’spropertyalleg-edlyleftatthesiteasnotsufficientlysupportedbythee�idence .
133 . TheCommissionawardscompensationforthedestruction,loot-ingandstrippingoftheSenafeTelecommunicationsBuilding,andtheloot-ingandstrippingofrelatedinfrastructureandthelocalloopupgrade,inthetotalamountofUS$1,735,000,aftercon�ersionattheapplicable2000and2005exchangerates .
134 . Other Senafe Town Claims.Abo�eandbeyondthethirteenstruc-turesspecificallyidentifiedintheCentralFrontPartialAward,Eritreasoughto�erERN33millionandUS$90,000for75%oftheallegeddestructionoforse�eredamagetoanothertwentybuildingsinSenafeTownduringtheEthio-pianoccupation:theBranchPoliceDepartment,Courthouse,RuwietElemen-tarySchool,SenafeElementarySchool,TishaElementarySchool,FortoSenafeElementarySchool,MehadElementarySchool,MinistryofEducationBranchOffice,MinistryofLand,WaterandEn�ironment,PostOffice,slaughterhouse,marketplace,gasstations,RedSeaCorporation,AbubekerAlsadiaqMosque,AnwarMosque,DaughtersofCharity,St .JosephCatholicChurch,ComboniSistersClinicandOrthodoxChurches .EthiopiaofferednospecificdefensetoEritrea’sclaimsonanyofthesebuildings .
135 . ThestrengthofthesetwentySenafeTownBuildingClaims�ariedconsiderably .Se�eralsufferedfromanabjectlackofe�idence .Forexample,EritreasoughtERN941,077for75%ofthepropertyallegedlylootedfromtheRedSeaCorporationwarehouse,onthebasisofonlyaone-page,undated,unsignedandotherwiseunauthenticatedpropertylist;thelineitemsrangefrom “Building (Damaged)” at ERN 250,000 to “Cassette” at ERN 28 .60 .Absentanyattempttopro�ethatthewarehouseexistedinSenafeTownandwaslootedduringtheoccupation,ortodocumentthecontentswithauthen-ticatedin�entories,theCommissioncannotawardanycompensation .Otherclaimswereatbestcontradictoryandatworstmisleading .Forexample,intheclaimforERN1,225,875for75%oftheallegedlootingdamagetotheAnwarMosque,itwasnotpossibletoseparateestimatedamountsforshellingdamageandlootingdamageintherele�antwitnessstatementandClaimForm .TheCommissiondeniesanycompensationforsuchclaims .
136 . OtherSenafeTownBuildingClaimsclearlyarebothcredibleandreasonable .OneexampleisEritrea’sclaimforERN998,090for75%oftheallegedlootingandstrippingdamagetothefour-buildingTishaElementarySchool .Eritreapresentede�idenceintheformofaConstructionAgreementandCertificateofPaymentforERN439,312(at100%)foractualrepairstotheschoolin2002,whichin�oicereflectedstripping-relatedrehabilitationratherthannewconstruction .EritreabasedtheestimateofERN891,474(at100%)forreplacinglootedfurnitureandsuppliesonauniformMinistryofEducationelementaryschoolstandard,whichtheCommissionfindsreasonable .AnotherexampleisEritrea’sclaimforERN495,728for75%oftheallegedlootingandstrippingdamagetotheele�en-roomComboniSistersClinic .Eritreasubmit-
558 ERITREA/ETHIOPIA
tedawitnessstatementfromtheheadoftheClinic(withattachedin�entory)andarelati�elydetailedClaimForm,whichdescribedboththeextensi�eloot-ingandstrippingof theClinicandtheexpense incurred inrepairingandrestockingit(withCatholicChurchfunds)in2005 .Inyetanotherexample,EritrealimiteditsclaimfordamagetotheCourthouseto75%oftheMinis-tryofJustice’sestimatesofERN172,103(at1997prices)toreplacethirteenstrippedwindowsandfifteenstrippeddoorsandERN284,916(at2005prices)toreplacelootedfurnitureandequipment .TheCommissionispreparedtoawardtheamountssoughtforsuchclaimsinfull .
137 . Mostcommonly,theCommissiondiscountedtheamountawardedonthebasisofthee�idencepro�ided .Eritreasoughtalmosttenmillionnakfaforrepairs totheBranchPoliceDepartment,as towhichtheCommissionexplicitlydeniedEritrea’sclaimforunlawfuldestructionintheCentralFrontPartialAward .Eritreasupporteditslootingandstrippingclaimprimarilywitha“SpecificationandBillofQuantitiesforConstructionDestroyedbyWeyaneTroopsatSenafe,”whichreflectedthatthecontractorperformedsubstantialnewconstructionwork .Althoughdenyingthatcomponentoftheclaim,theCommissiondoesawardtheERN83,052soughtforlootedfurnitureandsup-plies,whichwassupportedbyanitemizedlistpreparedbytheheadoftheSenafeSub-Zobapoliceforce .InEritrea’sclaimforERN751,688for75%ofthelootingandstrippingdamagetotheOrthodoxChurches,EritreapresentedawitnessstatementfromtheheadoftheChurcheswhodescribedthestrippingandlootingandattachedarelati�elydetailed2001listofthelostproperty,includingreligiousbooksbyauthor .Howe�er,inhiswitnessstatement,theKeshialsotestifiedthattheroof,doorsandwindowsofonechurch—whichwereincludedonhislist—weredestroyedbyhea�yshelling .TheCommissionreducesthecompensationawardedbythe�alueofthosedestroyeditems .Inotherinstances,wheretheestimated�aluesforcommonitems,suchastables,chairs,computersandothersmallelectrical items,aresignificantlyhigherthana�erage,theCommissionhasawardedapercentageofthetotalclaimed .
138 . TheCommissionawardsEritreacompensationintheamountofUS$585,000for75%ofthetotaldamagefromthelootingandstrippingofthebuildingslistedforSenafeTownduringEthiopia’soccupationbetweenMay26,2000andJune2001,aftercon�ersionattheapplicableexchangerates .Add-ingtheamountsawardedforthethirteenstructuresidentifiedintheCentralFrontPartialAward,thetotalawardedforEritrea’sBuildingClaimsinSenafeTownisUS$10,130,000 .
139 . In sum, the total compensation awarded for Eritrea’s BuildingClaimsfortheCentralFrontisUS$13,140,000 .
5. The Western Front
140 . On the Western Front, the Commission found Ethiopia liableforinflictingorpermittingdamagetobuildingsinthetownsand�illagesof
partxvii—FinalAWARD eritrea’sdamagesclaims 559
Teseney,Alighidir,Guluj,Tabaldia,Gergef,Omhajer,BarentuandTokombia,andMolkiSub-Zoba:
—ForpermittingthelootingandburningofbuildingsinTeseneyTownduringMayandJune2000;
— For permitting the looting and burning of houses in the �illage ofAlighidirandtheburninganddetonationofthenearbycottonfactoryandstoredcottonduringMayandJune2000;
—For90%ofthetotaldamagecausedbythelootingandburningofstruc-turesanddestructionofli�estockpermittedinthetownofGulujduringMayandJune2000;
—Forpermittinglootinginthe�illageofTabaldiaduringJune2000;—Forpermittinglootinginthe�illageofGergefduringJune2000;—For75%ofthetotaldamagecausedbythelootingandstrippingofbuild-
ingspermittedinOmhajerfromMay16,2000untilthedepartureofthelastEthiopianforcesinSeptember2000;
—Forpermittingthebreaking,enteringandlootingofhouses,businessestablishmentsandgo�ernmentbuildingsinBarentuTownduringitsoccupationfromMay18to26,2000;
—Forthedestructionofthepolicestation,thecourthouse,theGash-SetitHotelandConferenceCenter,andabakeryinBarentuTown;
—Forpermitting the lootingofbuildingsanddestructionof thepolicestationinTokombiaTown,andthedestructionofthenearbyRothmantobaccoplant,duringitsoccupationinMay2000;and
—ForpermittingthelootingofbuildingsinMolkiSub-ZobaonMay15–16,2000 .38
141 . Eritreaclaimeddamagesofapproximately1 .8billionnakfaplusUS$36million inconnectionwith itsWesternFrontBuildingClaims .Forindicati�epurposesonly,aftercon�ertingthenakfaamountattherounded2005exchangerateofERN15:US$1,thetotalclaimedisapproximatelyUS$153million .
142 . Teseney Town.TheCommissionfoundEthiopialiableforpermit-tinglootingandburningofbuildingsinTeseneyTownduringMayandJune2000 .AssetoutintheWesternFrontPartialAward,thetowndidnotsuf-fermuchdamageduringthefirstoccupation,althoughEthiopiantroopsdidlootlargestocksofsugarthathadbeenstoredthereandstoleflourfromatleastonebakery .39Itwasduringthesecondoccupationthatlootingandburn-
38 PartialAward,WesternFront,AerialBombardmentandRelatedClaims,Eritrea’sClaims1,3,5,9–13,14,21,25&26betweentheStateofEritreaandtheFederalDemocraticRepublicofEthiopia(December19,2005)[hereinafterPartialAwardinEritrea’sWesternFrontandRelatedClaims],dispositif,Section .IX .A .2,quotedinfullabo�eatpara .49 .
39 Id.,para .29 .
560 ERITREA/ETHIOPIA
ingwaswidespread .40EritreasoughtcompensationofERN271,625,913plusUS$3,397,148inrelationtothirtybuildingsorgroupsofbuildingsinTeseneyTown:thehospital,MotherandChildHealthCenter,Sub-ZobaAdministra-tionOffice,TreasuryOffice,Sub-ZobaCourtandShariaCourtandPublicProsecutor’s Office, Sub-Zoba Police Station, Telecommunications facility,Water Authority, Electric Authority, schools, Sub-Zoba Ministry of Agri-culture,MinistryofFinanceInlandRe�enueandBudgetOffices,Sub-ZobaPeople’sFrontforDemocracyandJustice(“PFDJ”)Office,CustomsOffice,ERRECfacilities,LandTransportOffice,MiningDepartment,RedSeaCor-poration,Sub-ZobaOfficeforNationalUnionofEritreanYouthsandStudents(“NUEYS”),NationalUnionforEritreanWomen,ZulaImport/ExportFacilityandGashAgriculturefarm,TeseneyBarkaFarmingEnterprise,marketplace,CommercialBankofEritreaTeseneyBranch,HousingandCommerceBank,gasstations,EritruckoShareCompany,hotels,CatholicChurchandMosque .
143 . Ethiopia raised specific objections to three of Eritrea’s TeseneyBuildingClaims .WithrespecttoEritrea’sclaimforo�er128millionnakfa(aftertheadjustmentmadeatthehearing)fortheallegedlossofcropsandcropassistancein2000followingdestructionofMinistryofAgriculturefacili-ties,Ethiopiaobjectedthatthiswasanewclaimoraclaimduplicati�eofErit-rea’sconsequentialdamagesclaimand,inanye�ent,thatanysuchlosseswerecausedbythewar .TheCommissionissatisfiedthatEritreafailedtolinkitsallegedcropandcrop-relatedlossestotheburningandlootingoftheMinis-tryfacilities,ascomparedtothedisruptioncausedbythewar,andsodeniestheclaiminfull .Similarly,theCommissionacceptsEthiopia’sobjectiontoEritrea’slostprofitsclaimofapproximatelythirteenmillionnakfainconnec-tionwithdamagetotheZulaImport/ExportFacilityandGashAgriculturefarm,findingthatlostprofits(iftheycouldbepro�en)wereattributabletothewarandpost-wareconomy .TheCommissionalsodisallowsthetwomil-lionnakfaclaimforfruittreeslostduetolackofirrigation,findingnopro�engeographicalnexusbetweentheorchardsandlootinginTeseneyTown .TheCommissiondoes,howe�er,awardcompensationofUS$600,000(con�ertedatthe2000exchangerate)forEritrea’swell-documentedproofofthedestructionofsubstantialstoresofgrainandfeedandli�estockatthatfacility .
144 . Ethiopiaalsoobjected,ongroundsof lackofproof, toEritrea’sclaimforsomeeighteenmillionnakfaplustwomilliondollarsfortheallegedlootingandburningofpropertyownedbytheRedSeaCorporation .Ethiopiawascorrectthattheonlye�idenceforthislargeclaimwasanundatedandunauthenticatedchartsettingoutthetype,unitcostsandtotalcostsofitemsallegedlylooted .Asinothersuchinstances,theCommissioncannotawardanycompensationforthisclaim .ItiscertainlycrediblethattheRedSeaCor-porationhadstockedwarehousesatthetimeofthetwooccupations,andtherecordwasclearthatlootingoccurred,butanawardofcompensationmust
40 Id.
partxvii—FinalAWARD eritrea’sdamagesclaims 561
restonsomethingother thananunauthenticatedbare-bones in�entoryofallegedlylootedgoodsandtheir�alue .Se�eralofEritrea’sotherTeseneyBuild-ingClaims(forexample,inconnectionwiththecourts,Telecommunicationsfacility,ElectricAuthorityandCommercialBankofEritreabranch)sufferedfromsimilarlyconclusoryandhenceinsufficiente�identiarysupport .
145 . Incomparison,otherEritreanclaimsforTeseneyTowndamag-eswerestrong .Forexample,EritreasupporteditsclaimforERN71,633forthelootingoftheSub-ZobaPoliceStationwithadetailedwitnessstatementdescribingtheconditionofthefacilitybothbeforeandaftertheoccupations,andanitemizedlist(circa2005)supportingthemodestandcrediblelootingdamagessought .TheCommissionawardstheamountinfull,atapproximatelyUS$4,500atthe2005exchangerate .Thesamepro�edtobethecaseforthelargerclaim,atapproximatelyERN3 .3million,forthelootingandburningoftheTeseneyHospital .
146 . AlsostrongwereTeseneyTownBuildingClaimsthat,likeclaimsinotherregions(discussedbelow),werereinforcedbytheMinistryofLocalGo�ernment’sJuly2000“ReportofaRapidAssessmentontheWar-InducedDamagesofGashBarkaRegion”(“Gash-BarkaRapidAssessmentReport”) .Thestatedobjecti�esoftheReportwere“toconductarapidassessmentonthedamagesdonebythethirdroundEthiopianoffensi�eongo�ernmentoffices,socialser�icespro�idinginstitutionsandtheirfacilities;andtoidentifypriori-tiesandmeasuresthatha[�e]tobetakenintheshort-runandthelong-run .”AteamfromtheMinistryofLocalGo�ernmentmadepreliminaryassessmentsofthedamagetospecificgo�ernmentoffices,educationalinstitutions,healthinstitutions,watersupplyandsanitationandagriculturalinstitutions,aswellaselectricsupply,pri�atesectorfacilities,marketplacesanddrainagestruc-tures .Annexessetoutestimated�aluesin2000ofsometwohundredstruc-turesandestimateddamagestothosestructures,brokendownforthebuild-ing,furnitureandequipment .AlthoughtheReportdidnotcontainback-updocumentationfortheestimatesintheAnnexes,theCommissionconsidersthelackofsuchdocumentationtobebalancedbythefactthattheassessmentwasnotpreparedforlitigation,andbytheconsistencyandreasonablenessoftheestimatesforthe�ariouscategoriesofstructures .
147 . Eritrea’sclaimforERN208,000forlooting-relatedrepairstotheTeseneyMotherandChildHealthCenter,forexample,wasconsistentwiththefigureintheGash-BarkaRapidAssessmentReport .Inotherinstances,forexampleinconnectionwiththeTeseneyschools,theCommissionrelieduponthebuildingrehabilitationestimatesintheGash-BarkaRapidAssess-mentReportratherthanhigherestimatesmadelater,whichreflectedplansforschoolexpansionorimpro�ementinadditiontocirca2000repairneeds .
148 . In total, the Commission awards Eritrea compensation in theamountofUS$2,375,000forthelootingandburningofthebuildingslistedabo�einTeseneyTownduringEthiopia’soccupationinMayandJune2000 .
562 ERITREA/ETHIOPIA
149 . Alighidir Village.Forthe�illageofAlighidir,theCommissionfoundEthiopialiableforpermittinglootingandburningofhouses,andtheburninganddetonationofthenearbycottonfactoryanditsstoredcotton,duringMayandJune2000 .EritreasoughtatotalofERN698,928,601plusUS$29,293,572incompensationforitsAlighidirBuildingClaims,allbutapproximatelyfourmillionnakfaofwhichwasattributabletothecottonfactory .
150 . Cotton Factory.Eritrea’se�idencereflectedthattheAlighidircot-tonfactory(technically,theAlighidirAgriculturalDe�elopmentProject)wasanextremelysignificantenterpriseintheGash-Barkaregion .AccordingtoEritrea,thecottonsectionoftheprojectwasthelargestindustrialagriculturalandhandicraftemployerinthecountryandthesinglelargestcontributortothegrossdomesticproduct .Inadditiontocottonfarmingandprocessing,theprojectfeaturedabriquettingfactoryandcropsofsorghumandpeanuts .Con-structiontookplaceafterindependenceinthe1990s,startingwiththepro�i-sionofsmallplotsoffarminglandtodemobilizedfightersandrehabilitationofa1923di�ersionweirfromtheGashRi�er .Eritreain�estedapproximatelyUS$600,000toconstructthebriquettingfactoryandanotherUS$40,000formachinery .Thecontractpricetoconstructtheexpansi�ecottonprocessingfacilities,consistingofdozensofbuildingsandsupportinginfrastructure,wasapproximatelythirtymillionbirr .EritreapurchasedUS$4,000,000worthofmachineryandsuppliesforthecottonprocessingfacilitiesand,justbeforetheEthiopianoccupationinJune2000,wasawaitingthearri�alofrepresentati�esofaU .S .contractortotestthemachineryandtrainemployees .Eritreaantici-patedsubstantialre�enues,inadditiontofarmingandbriquettingre�enues,oncethecottonprocessingfacilitieswentonline .
151 . Gi�enthisbackground,itisnotsurprisingthatEritrea’ssinglelarg-estBuildingClaim—byalargeorderofmagnitude—wasitsclaimforERN694,810,142plusUS$29,281,572forEthiopia’sdetonationandburningofthecottonfactoryanditscotton .AsemphasizedbyEthiopia, thisrepresentedsome40%ofEritrea’stotalBuildingClaims .
152 . Theclaimconsistedofsixcomponents,thefirsttwofordamagesconnectedtothedestructionofthefacilitiesandthecotton,andtheremainingfourfor“otherlosses”:(a)ERN110,515,860,asestimatedin2003,toreplaceallofthemachinery,storedcottonandothergoodsthatweredestroyedorlooted;(b)ERN191,053,141,alsoestimatedin2003,toreconstructallofthefacilitiesandrepairlootingdamage;(c)US$2millionascompensationforlandprepara-tionforthe2000cropyear,whichcouldnotbeusedduetolootingofseedsandfarmequipment;(d)US$5,392,400foraidtofactoryfarmersandemployeeswhobecameunemployedafterthedestruction;(e)ERN318,241,140forlostre�enuethrough2006;and(f)US$21,889,172andERN75,000,000ascompen-sationforen�ironmentaldamagecausedbythereleaseofpesticidesandchem-icals,whichallegedlykilledthousandsofli�estockandsickenedhumans .Insupportoftheclaim,EritreasubmittedadamageassessmentreportpreparedbyAlighidirAgroIndustry(“AAI”)inJuly2000,se�eralwitnessstatements,
partxvii—FinalAWARD eritrea’sdamagesclaims 563
originalcontractorbid formsandotherconstructioncontractdocuments,engineeringreports,andareportonen�ironmentalcontaminationpreparedbytheEritreanOfficeoftheLegalAd�isorin2006 .
153 . Ethiopiapresentedse�eralspecificdefensestothisclaim .Astothedestructionofthefacilitiesthemsel�es,EthiopiasubmittedthatEritreawouldbefairlycompensatedwithpaymentattheoriginalconstructionprices .Ethio-piaobjectedtoanycompensationforthedestructionofthedi�ersionweir,whichislocatedattheGashRi�erfarfromthecottonfactoryandthe�illageofAlighidir .AsforEritrea’sclaimsforotherlosses,Ethiopiachallengedthemforlackofbothpro�encausationande�identiaryproof .Ethiopiaalso�iewedthefarmers’assistanceclaimasbeinganewclaimand,inanye�ent,fallingwithinEritrea’sseparateclaimforconsequentialdamages .
154 . Ha�ingcarefullyre�iewedandweighedthesubstantiale�idenceforthisimportantclaim,aswellasEthiopia’sdefenses,theCommissionagreeswithEthiopiathattheallegeddamagetothedi�ersionweirfallsoutsidetheliabilityAward,butdoesnotagreeto limit thecompensationforthemas-si�edestructionofthefacilitiestotheamountsoftheoriginalconstructioncontractdatingfromthe1990s .TheCommissionconsidersthebestapproachtobetouse,toalargedegree,thefiguresintheJuly2000AAIAssessmentReport,whichcomprehensi�elyre�ieweddamagetoallofthebuildingsinthecomplexandtotheirmachineryandothercontents .Thisreportestimatedthetotalcostsofrebuildingandre-fittingthecomplexatERN216,573,159 .Deductingamountsforlostre�enue,forrepairofthedi�ersionweirandfora25%contingency,whichtheCommissiondisallows,thetotalawardablecostsfordestructioncometoapproximatelyUS$12,640,000,con�ertedatthe2000exchangerate .
155 . TheCommissiondeniesallofEritrea’sclaimsforotherlosses .First,Eritreafellfarshortofpro�ingthenecessarycausationforitsUS$2millionclaimforlostfarmlandpreparationforthe2000crop .EritreaitselfadmittedthatitwastheEthiopianin�asionthatcausedAlighidirfarmerstofleetheirlandinMay2000 .Second,andsimilarly,Eritreadidnotshowthattheunem-ploymentunderlyingitslargeclaimforsomeUS$5millionforaidtofarmersandworkersin2000wasconnectedtothecottonfactoryratherthantopost-occupationandpost-wareconomicconditions .Third,Eritreafailedtosupportitshugeclaim—ato�er300millionnakfa,greaterthantheclaimstorebuildandre-fitthecottonfactoryfacilities—forlostre�enuesbetween2000and2006 .Eritreafailedtoseparatelostprofitsfromlostre�enuesortoseparateallegedlylostprofitsfortheoperatingelementsoftheproject(farmingandbriquetting)fromthepurelyanticipatedlostprofitsfortheuntestedcottonprocessingfacilities .Finally,althoughitisentirelycrediblethatthedetona-tionandburningofthecottonfactorycausedthereleaseoftoxicchemicals,andalthoughtheCommissionappreciatestheneedtoamelioratetheresultanten�ironmentaldamage,theCommissionmustdenythiscomponentoftheclaim .Regardlessofwhethertheclaimisanewclaim,thefactremainsthatit
564 ERITREA/ETHIOPIA
issupportedsolelybyareportpreparedbyEritrea’sad�ocates,whoareneitherneutralnoren�ironmentalexperts .
156 . In sum, the Commission awards Eritrea compensation in theamountofUS$12,640,000 for theunlawfuldetonationandburningof theAlighidircottonfactoryanditsstoredcottonduringEthiopia’soccupation .
157 . Other Alighidir Building Claims. Eritrea sought approximatelyERN4millionforthelootingandburningoftenotherbuildingsinAlighidir,consisting of: the Alighidir Project Health Center, Town AdministrationOffice,PoliceStation,WaterSupply,FenkalElementaryandSecondarySchool,MinistryofAgricultureBranchOffice,NUEYSBranchOffice,BaseUnionOfficeoftheNationalConfederationofEritreanWorkers,MobilOilstationandAlighidirmatchfactory .EthiopiaofferednospecificdefensetoEritrea’sclaimsonthesebuildings .
158 . Se�eralofEritrea’sclaimsforallegedlylootedandburnedbuild-ingsinAlighidirfellshortonproof .Forexample,theCommissiondisallowstheERN590,396claimfordamage to theAlighidirmatch factory,which,althoughallegedlyamajoremployerintheregion,wasnotincludedintheexperts’reportsattheliabilityphaseordescribedinwitnessstatementsatthedamagesphase;theroughlumpsumestimatebyaconstructioncompanyin2000contemplatedimpro�ementsaswellasrepairs .Similarly,theCommis-sionreducestheERN1,372,655claimfordamagetotheTownAdministrationBuildingbyhalf,becausetheestimateappearedexcessi�eforanadministra-ti�ecenterforatownofonlysome1,100residents .Otherclaims,forexamplethoseforrepairstothePoliceStationandtoreplacealootedwaterpump,wereadequatelysupported .
159 . The Commission awards Eritrea compensation in the amountofUS$170,000forthelootingandburningofthebuildings listedabo�einAlighidir during Ethiopia’s occupations in May and June 2000 . The totalawardedforEritrea’sBuildingClaimsinAlighidir,includingthecottonfac-tory,isUS$12,810,000 .
160 . Guluj Town.Ha�ingfoundthatEthiopiapermittedlootingandburningofstructuresinthetownofGulujduringMayandJune2000,theCommissionfoundEthiopialiablefor90%ofthetotal lossanddamagetoproperty inGulujduring that time .Afterapplying the90%factor,EritreasoughtcompensationofERN9,688,554plusUS$39,502inrelationtofifteenbuildings or groups of buildings in Guluj: the Health Center, Ministry ofHealthWarehouse,Sub-ZobaAdministration,TownAdministrationBuild-ing,PoliceStation,Courthouse,WaterAuthority,schools,Sub-ZobaMinis-tryofAgriculture,Sub-ZobaPFDJOffice,LandTransportOffice,Sub-ZobaNUEYSOffice,NUEWfacilities,gasstationsandCatholicChurch .EthiopiaofferednospecificdefensetoEritrea’sclaimsonanyofthesebuildings .
161 . WiththeexceptionofitsclaiminconnectionwiththeCatholicChurch,Eritreagenerally supported itsGulujBuildingClaims for looting
partxvii—FinalAWARD eritrea’sdamagesclaims 565
and burning . Compared to claims for other religious institutions, EritreabaseditsGulujCatholicChurchclaimonlyonaskeletalpropertylistwithadollaramountofestimatedlosses .TheCommissiondisallowsthatclaim,andreducescertainotherswherethequantume�idencedidnotmatchtheamountsclaimedintheMemorial(forexample,theclaimforrepairstotheCourthouse) .Asinotherlocations,theCommissionreliedontheGash-BarkaRapidAssessmentReportfor�aluationof90%oftheallowabledamagetotheGulujschools .
162 . TheCommissionawardsEritreacompensationintheamountofUS$900,000for90%ofthetotallossanddamagetothebuildingsorgroupsofbuildingslistedabo�einGulujfromlootingandstrippingofbuildingsduringEthiopia’soccupationsinMayandJune2000 .
163 . Tabaldia and Gergef Villages and Molki Sub-Zoba .TheCommissionfoundEthiopialiableforpermittingthelootingofbuildings,butnotpropertydestruction,inthe�illagesofGergefandTabaldiainGulujSub-ZobainJune2000,andalsoinMolkiSub-ZobaonMay15to16,2000 .ForTabaldia,Erit-reasoughtcompensationofERN545,526plusUS$900forthelootingoffi�ebuildings:theHealthStation,TownAdministrationBuilding,WaterSupply,elementaryschoolandNUEYSBranchOffice .ForGergef,EritreasoughtERN1,914,224plusUS$62,250forthelootingofthesamefi�ecategoriesofbuild-ing:theHealthStation,TownAdministrationBuilding,WaterSupply,elemen-taryschoolandNUEYSOffice .EritreasoughtcompensationofERN5,376,644plusUS$138,000forthelootingofele�enbuildingsorgroupsofbuildingsinMolkiSub-Zoba:theDerabushHealthStation,EndaGaborHealthStation,JejaHealthStation,MolkiTownHealthStation,Sub-ZobaAdministrator’sResidence,WaterSupply,schools,MinistryofAgriculture,Sub-ZobaPDFJOffice,Sub-ZobaNUEYSOfficeandSub-ZobaNUEWoffice .Ethiopiaofferednospecificdefensetoanyofthesetwenty-oneEritreanBuildingClaims .
164 . Ingeneral,Eritreapresentedsufficientproofoflootingandloot-ing-relateddamagestothesebuildings .WheretheCommissionisnotsatisfiedthatrepairswerenecessitatedbylooting(forexample,repairstotheTabaldiaHealthStation)orthatthereplacementestimateswerereasonable(forexam-ple,estimatesforsolarpanelsandgeneratorslootedfromtheGergefWaterSupply,andforpumpslootedfromtheMolkiWaterSupply),theCommissionreducesordisallowscompensation .Asinotherinstances,theCommissiondenies compensation for claimsbasedonunsigned,undatedorotherwiseunauthenticatede�idence(aswiththeclaimfortheGergefNUEYSoffice)oronmissinge�idence(aswiththeclaimsfortheMolkiNUEWofficeandtheTabaldiaTownAdministrationBuilding) .
165 . In sum, the Commission awards Eritrea compensation in theamountsofUS$30,000andUS$225,000forpermittingthelootingofthespeci-fiedbuildingsinTabaldiaandtheindicatedbuildingsinGergef,respecti�ely,inJune2000;andUS$405,000forpermittingthelootingofthelistedbuildingsinMolkiSub-ZobaonMay15to16,2000 .
566 ERITREA/ETHIOPIA
166 . Omhajer Town.Ha�ingfoundEthiopialiableforpermittingloot-ingandstrippingofbuildingsinOmhajerfromMay16,2000untilthedepar-tureofthelastEthiopianforcesinSeptember2000,theCommissionfoundEthiopialiablefor75%ofthetotalpropertydamageinOmhajerduringthattime . After applying the 75% factor, Eritrea sought compensation of ERN19,872,834plusUS$18,000inrelationtothirteenbuildingsorgroupsofbuild-ingsinOmhajer:theHealthCenter,TownAdministrationBuilding,Sub-ZobaOffice,PoliceStation,Courthouse,WaterSupply,TelecommunicationsOffice,schools,MinistryofAgriculture,MinistryofFinanceandInlandRe�enue,ImmigrationandCustomsBuildings,marketplaceandgasstations .EthiopiaofferednospecificdefensetoEritrea’sclaimsonanyofthesebuildings .
167 . Again,thee�idencesupportingEritrea’sOmhajerclaims�ariedfrombuildingtobuilding .TheCommissionawardsthefullERN1,193,923claimfor75%ofthedamagetotheHealthCenter,whichwasbasedontheGash-BarkaRapidAssessmentReport .Incomparison,theCommissionisnotpreparedtoawardtheapproximatelyERN2 .5millionclaimfortheCourt-house,becauseEritreapresentednoe�idenceoftheexistenceoftheCourt-housebeforetheoccupationandoneofitswitnessesindicatedtherewasnotacourthouseinOmhajer .Inse�eralotherinstances,theCommissiondiscountstheamountsawardedbecausethee�idencereflectedestimatesforbuildingimpro�ementsratherthanrepairs(forexample,inconnectionwiththePoliceStationandmarketplace)ore�idencewasmissingorotherwiseinsufficient(forexample, inconnectionwiththeschools,MinistryofAgricultureandWaterSupply) .
168 . TheCommissionawardsEritreacompensationintheamountofUS$810,000for75%ofthepropertydamageinOmhajerfromthelootingandstrippingofthelistedbuildingsfromMay16,2000untilthedepartureofthelastEthiopianforcesinSeptember2000 .
169 . Barentu Town.TheCommissionfoundEthiopialiableforpermit-tingbreaking,enteringandlootingofhouses,businessestablishmentsandgo�ernmentbuildingsinBarentuTownduringitsoccupationfromMay18to26,2000,andforthedestructionofthePoliceStation,Courthouse,Gash-SetitHotelandConferenceCenterandDisabledFightersBakery .EritreasoughtatotalofERN570,782,532plusUS$971,388incompensationforitsBarentuTownBuildingClaims .
170 . Police Station.EritreasoughtcompensationofERN5,560,283fordestructionandlootingoftheZobaGash-BarkaCentralPoliceStationandadjacentpolice conferencebuilding .Eritreabased its rebuildingclaim forERN4,199,897onconstructioncontractdocumentsfromtheZobaInfrastruc-tureDepartment(allegedlydatingfrom2006)anditslootingclaimforERN1,360,385onaNo�ember2006Gash-BarkaPoliceListoflootedmaterialssaidtobeincludedinEritrea’se�idence .Ethiopiaofferednospecificdefense .TheCommissiondeniesthelootingclaimforlackofe�identiaryproof,becausethePoliceList ismissingfromtherecord .Asfortherebuildingclaim,the
partxvii—FinalAWARD eritrea’sdamagesclaims 567
Commissionnotes that theZoba InfrastructureDepartmentconstruction(“maintenance”)documentswereneitherdatednorsigned,anddidnotspecifywhethertherele�antworkwasperformedontheSub-ZobaorZobaPoliceStation .Howe�er,theCommissionlocatedasecondsetofconstructiondocu-mentsintherecordexpresslyforthe“maintenanceandrehabilitationcon-struction”oftheZobaPoliceheadquarters,datedOctober2005,indicatingtotalcostsofERN1,435,102 .Takingthismorespecificandlowerestimateandapplyingthe2005exchangerate,theCommissionawardsUS$95,000ascompensationforthedestroyedZobaPoliceStationcompound .
171 . Courthouse.AccordingtoEritrea,theBarentuCourthousecon-tainedse�eraldifferentcourts,includingtheZobaCourt,theSub-ZobaCourtandtheShariaCourt,ser�ingo�er55,000people .TheCourthousewasatwo-storystructurethathadbeencompletedandoutfittedshortlybeforetheEthio-pianoccupation,duringwhichitwasdestroyed .EritreasoughtERN3,000,000fortheestimatedrestorationofthebuilding,basedona2000MinistryofLocalGo�ernmentassessment,andERN111,198forthereplacementofthelootedcontents,basedondetailedin�entoriesforwardedbyajudgein2001 .Ethiopiadidnotpresentaspecificdefense .
172 . The Commission relied on the Gash-Barka Rapid AssessmentReport inassessingEritrea’sclaim inconnectionwith theBarentuCourt-house .Basedontheco�erageoftheCourthouseintheReport,theCommis-sionawardscompensationofUS$310,000(atthe2000exchangerate)forthedestructionoftheCourthouse .Ha�ingfoundanapparentcalculationerrorinthelostpropertyin�entories,theCommissionawardsUS$7,000(atthe2001exchangerate)forthelootedcontents .ThetotalawardforthedestroyedBaren-tuCourthouseisUS$317,000 .
173 . Gash-Setit Hotel and Conference Center.Eritreadescribedthepri-�ately-ownedGash-SetitHotelandConferenceCenteras“themostimportanteconomicasset”ofBarentuTown .Thetwo-storyhotel,whichwascompletedin1999ataconstructioncostof8 .5millionnakfa,hadforty-twoguestrooms,a large conference center, a restaurant and bar, and recreational facilities,aswellasitsowngenerator,watertank,andstorageandlaundryfacilities .Not surprisingly, Eritrea pursued a large claim—ERN 42,8711,401 [sic] intotal—forthedestructionandlootingofthehotel,brokendownintose�eralcomponents .Beyondtheestimatedcostsofrebuilding(ERN28,025,914)andreplacinglootedanddetonatedmo�ableproperty(ERN5,363,979),Eritreapursuedfouradditionaldamagesclaims:(a)lostprofitsthrough2006(ERN3,607,532);(b)fi�emonthsofwagesandse�erancepaidtoemployees(ERN245,000);(c)economiclosstothecommunity(ERN4,283,578);and(d)losttaxre�enuethrough2005(ERN1,345,398) .Eritreasubmitteda“ValuationforReconstruction”reportpreparedbyaconstructionmanagementconsult-anthiredbythehotel’sownerin2006,asupplementalwitnessstatementfromtheowner,andin�entoriesoflostfurnishingsandothermo�ableproperty .Ethiopiachallengedthemagnitudeoftherebuildingclaims,emphasizingErit-
568 ERITREA/ETHIOPIA
rea’sowne�idencethatthebuildinghadcostonlyERN8,500,000toconstructshortlybeforetheoccupation,andtheexceedinglyhighamountssoughttoreplaceitemssuchasthegenerator .Ethiopiaalsoobjectedtoalloftheaddi-tionaldamagesdemandsasnewclaims,duplicati�eclaimsforconsequentialdamages,orspeculati�eclaims .
174 . Turningfirsttotheadditionaldamagesclaims,theCommissiondoesnotagreethattheyarenewclaims .Gi�entheeconomicimportanceoftheGash-SetitHotelandConferenceCentertoBarentuTown,whichispre-sumablywhy itwasoneof thepri�ateenterprises targeted fordetonation,damagessuchaslostprofitsandse�erancepaymentobligationsfortheowner,lostopportunitiestothecommunity,andlosttaxre�enuetothego�ernmentwerereasonablyforeseeable .Howe�er,theCommissionisunabletoawardtheadditionaldamagesforlackofe�identiaryproof .Thefiguresforallfouroftheseadditionaldamagesclaims(includingEritrea’sdirectclaimforlosttaxre�enue)camefromthetwo-pagewitnessstatementofthehotelowner,whoofferedneitherdetailnorsupportingdocuments .Hestatedthatthehotelhadnotyetearnedaprofitbeforeitwasdestroyedandindicatedatotalnumberofemployees(withoutspecificnames)differentthanthatincludedinEritrea’sclaim .Ademandforalmostonemillionnakfamustbebasedonmorethanthistowarrantcompensation .
175 . ThesituationisdifferentwithrespecttoEritrea’sclaimsforthecostsofrebuildingthehotelandreplacingthelootedcontents .TheValuationforReconstructionreportwasaprofessionalanddetailedestimateofthecosts,in2006nakfa,ofdemolishingandreconstructingthecomplex .ThetotalofapproximatelyERN28million,ascomparedtooriginalconstructioncostsofERN8 .5million,wasconsistentwithotherestimatesthatconstructioncostshadtripled(atleastformajorstructures)afterthewar .TheCommissiondoesfindtheestimatesforreplacingthecontents,inparticularthelargemo�ablessuchasthegenerator,pumps,atruckandfurniture,tobehighcomparedtootherclaims,andsoreducestheamountclaimedbyhalf .TheCommissionawardscompensationintheamountofUS$1,985,000,aftercon�ersionatthe2006exchangerate,forthedestructionandlootingoftheGash-SetitHotelandConferenceCenter .
176 . Disabled Fighters Bakery.LiketheGash-SetitHotel,Eritreahigh-lightedthefateoftheDisabledFightersBakery,orSesonaBakery,inBarentu .AccordingtoEritrea,thiswasoneofthemanyprojectsfundedbytheEritreanWarDisabledFighters’Association,whichwascreatedin1978 .TheSesonaBakerypreparedandsoldlargequantitiesofbreadandotherbakedgoods,andalsorananattachedbarandrestaurant .Thebakerywassosuccessfulthatasecondonewasplanned,andconstructionmaterialswerereportedlystoredinthebakeryoffice .Eritreapresentedsubstantiale�idence,includingse�eralphotographs,ofthelootinganddestructionofthebakeryattheliabil-ityphase .
partxvii—FinalAWARD eritrea’sdamagesclaims 569
177 . Eritrea claimed ERN 2,859,435 in damages: ERN 1,047,543 forthelootingofmo�ables;ERN772,200fortherepairofthebuilding,includ-ingdamagedoneduringlooting;andERN1,039,692forlostincomethrough2004 .Theownersreportedlywereable toreopenin2004,ha�ingreplacedbasicequipment .Ethiopiaofferednospecificdefense .
178 . ConsideringthesignificanceoftheSesonaBakeryclaimtoEritrea,thesupportinge�idencewassurprisinglyweak .First,Eritreaputinnoe�i-dencetosupportitsERN772,200reconstructionclaim;thefigureappearedasalineitem(“Building/1/772,200 .17”)onanunsignedandundatedlistlinkedtotheDisabledFighters’Association .Second,Eritrea’slostprofitsclaimcon-sistedofsimplecalculationsattachedto thewitnessstatementof theheadoftheAssociation;hemultipliedtheunsupportedmonthlypre-warprofitsamountofERN21,660byforty-eightmonths,withnodiscounting,toreachfouryearsoflostprofitsatERN1,039,692 .Third,thee�idencesupportingtheERN1,047,543lootingclaimwasconfusing .Eritreaputinthreein�entories:theAssociationin�entoryoflootedbakeryitemsnotedabo�e(ERN682,870afterdeductionofthereconstructionamount);anin�entoryofbakeryitemsreplacedbeforethereopeningofthebakeryin2004(ERN165,735)attachedtothewitnessstatementoftheheadoftheAssociation;andanin�entoryofitemsbelongingtotheAssociationproperthatwerelootedfromtheoffice,estimatedatERN21,900 .41Gi�enapparento�erlapastoclaimsforofficefurniture,theCommissionreducesthelootingawardbyone-halfoftheestimated�alueofthe Association bakery in�entory . The Commission awards compensationrelatedtotheSesonaBakeryonlyforlootingdamages,andthatintheamountofUS$60,000,atthe2002exchangerate .
179 . Other Barentu Town Building Claims.TheCommissionnextexam-inesEritrea’scompensationclaims,totalingapproximatelyERN500millionplusUS$1million,for75%ofthedamageallegedlycausedbyEthiopia’sper-mittingthebreaking,enteringandlootingofanadditionalthirty-eightbuild-ingsorgroupsofbuildingduringitsoccupationofBarentuTown .Thesecon-sistofclaimsfordamagetothehospital,SosonaHealthStation,ZobaGashBarkaMinistryofHealthOfficesandwarehouse,ZobaGashBarkaAdmin-istrationOffice,ZobaGashBarkaAssemblyOffice,ZobaGashBarkaTreas-ury Office, Town Administration Office, Go�ernor’s Residence, Sub-ZobaPoliceStation,Telecommunicationsfacility,ElectricAuthority,WaterSupply,schools,MinistryofEducation,ZobaandSub-ZobaMinistryofAgriculture,ZobaGashBarkaMinistryofFinanceandInlandRe�enue,MinistryofLaborandHumanWelfare,MinistryofLand,WaterandEn�ironment,MinistryofTransportandCommunicationandLandTransportOffice,MinistryofTradeandIndustry,ZobaGashBarkaMinistryofInformation,ZobaGashBarkaGeneralSer�iceDepartment,BusinessLicenceOffice,ZobaGashBarkaMin-
41 Eritreareferencedafourththatisnotintherecord:ReportofdamagestoBarentuBakeryfiledbytheEritreanWarDisabledFighters’Association,13September2000,citedinERDamagesGroupOneMemorial,note767 .
570 ERITREA/ETHIOPIA
ingDepartment,PostOffice,RedSeaCorporation,ERRECfacilities,ZobaGashBarkaandBarentuSub-ZobaNUEYSfacilities,NationalConfederationofEritreanWorkersOffice,ZobaandSub-ZobaNEUWOffices,marketplace,hotels other than Gash Setit Hotel, Commercial Bank of Eritrea, WejebaBakery,gasstations,CatholicOfficesandSt .Michael’sChurch,MosqueandAdministrati�eOffice .
180 . Ethiopia raised specific objections to three of Eritrea’s claims,which were moderated by Eritrea’s withdrawal of missing e�idence andamendmentstoclaimsinthecourseofthehearing .Initsremainingdefenses,EthiopiaobjectedtothemagnitudeoftheclaimsinconnectionwiththeZobaGash-BarkaAdministrationOfficeandtheZobaandSub-ZobaMinistryofAgricultureongroundsthatEritreasoughtcompensationforrepairsandloot-inghigherthantheestimatesintheGash-BarkaRapidAssessmentReport,whichEritreafailedtocitease�idence .Intheseinstances,andinotherssuchasEritrea’sclaimsinconnectionwiththeBarentuHospitalandZobaGash-BarkaMinistryofHealthOfficesandWarehouse,theCommissionreliesupontheestimatesintheGash-BarkaRapidAssessmentReportinassessingcom-pensation .
181 . Se�eralofEritrea’sBarentuBuildingClaimsfailforlackofproof .OnesuchclaimwasEritrea’sERN10,267,850claimforlootingoftheBarentuHealthStation,whichwasbasedsolelyonthesamedocumentationthatEri-treaagreedtowithdrawfromthee�identiaryrecordinamendingitsclaimforthelootingofBarentuHospital .Foranothercategoryofrejectedclaims,Eritreaofferednoe�idenceofthestatusandcontentsofrele�antbuildingsbeforetheoccupation,andreliedentirelyonlistsofallegedlylooteditemstoshowthatlootinghadinfactoccurred;examplesincludedclaimsrelatedtotheZobaGash-BarkaGeneralSer�iceDepartmentandMiningDepartment .TheCommissionalsodeniesclaimswheretherewasnoproofofquantum,forexample,Eritrea’sclaimforalmostUS$600,000foritemsallegedlylootedfromtheTelecommunicationsfacility,whichwassupportedonlybyafewlineitemsina2000listpreparedbytheTSE .NoristheCommissionpreparedtoawardcompensationforallegeddamagesfallingclearlyoutsidethebreaking,enter-ingandlootingacti�itiesforwhichEthiopiawasfoundliableintheWesternFrontPartialAward,forexample,Eritrea’sclaimforMinistryofLand,WaterandEn�ironmentequipmentsuchasraingaugesandflowwatermetersalleg-edlylootednotfrombuildingsbutfromthefield .
182 . The Commission discounts other claims where the amountsclaimedappearedinflated,forexample,inEritrea’sclaimofmorethanonemillionnakfaforlooteditems(includingpensionpaymentdocuments)fromthesmallTreasuryOfficeinthePoliceStation .
183 . AmodestnumberofEritrea’sBarentuBuildingClaimswerewell-supported .Toofferafewexamples,theCommissionawardsUS$135,000(con-�ertedatthe2002exchangerate)forEritrea’sclaimsfordamagescausedbythebreaking,enteringandlootingofBarentuschools,whichweresufficiently
partxvii—FinalAWARD eritrea’sdamagesclaims 571
documented both as to looting and quantum of damages . (The Commis-siondiddeducttheERN1,574,587contributedbyUNICEFforreconstruc-tionofNugusBazenElementarySchool .)Similarly,theCommissionawardsUS$80,000(con�ertedatthe2000exchangerate)forreplacementoflooteditemsandrepairofmajordamagestothewallandroofoftheWejebaBakerythatoccurredwhenano�enwaslootedbyuseofacrane,ase�idencedgraphi-callybyphotographsandwitnesstestimonyattheliabilityphase .
184 . TheCommissionawardsEritreacompensationintheamountofUS$2,083,000forthebreaking,enteringandlootingofthebuildingsorgroupsofbuildingslistedinBarentuTownduringEthiopia’soccupationfromMay18to26,2000 .AddingtheamountsawardedforthefourstructuresidentifiedintheliabilityAward,thetotalawardedforEritrea’sBuildingClaimsinBarentuTownisUS$4,540,000 .
185 . Tokombia Town. For Tokombia Town, the Commission foundEthiopialiableforpermittinglootingofbuildingsandthedestructionofthepolicestationandthenearbyRothmantobaccoplantduringitsoccupationinMay2000 .EritreasoughtatotalofERN184,001,029plusUS$1,655,990incompensationforitsTokombiaTownBuildingClaims .
186 . Police Station.EritreasoughtERN705,552forthedamagetoandlootingoftheTokombiaLalaiGashSub-ZobaPoliceStation,whichconsist-edofadministrati�eoffices,a jailandaresidenceforthepolice .AlthoughtheCommissionfoundEthiopialiableforthedestructionofthestructure,Eritreasoughtonlytheestimatedcosts(ERN625,242)ofreplacingstrippedroofs,doorsandwindows;repairingthewalls,floorsandceilings;andreplac-ingsanitaryandelectricalfixtures .EritreaalsosoughtERN80,310toreplacelooteditems,includingfurniture,tools,bicycles,andofficeandkitchenequip-ment .Thesetwocategoriesofdamagesweresupportedbyasetofconstructionspecificationsandadetailedin�entory,respecti�ely,datingfrom2005 .Ethio-piaofferednospecificdefense .Findingthedamagesclaimbothreasonableandsupportedbythee�idence,theCommissionawardsfullcompensationofUS$45,000,aftercon�ersionatthe2005exchangerate .
187 . Rothman Tobacco Plant.AccordingtoEritrea,theRothmanTobac-coProcessingPlantwasthelargestemployerintheTokombiaregion .Itwasalargeagriculturalandprocessingfacilitycomprisedoftobaccogrowingfields,buildingsandequipmentforthecommercialsaleoftobaccoandcigarettes .PhotographsofthedestroyedplantfeaturedprominentlyattheWesternFrontliabilityhearing,andtheCommissionfoundEthiopialiableforthedestruc-tionoftheplant .Atthedamagesphase,EritreasoughtERN2,024,178plusUS$1,453,490forthedetonationandlootingofthefacility .Ethiopiapresent-ednospecificdefense .Surprisingly,gi�entheeconomicimportanceoftheRothmanplant inTokombia,Eritreabaseditsdestructionclaimonlyonahalf-page,unsignedandundateddocument,reportedlysettingoutthebook�alue—US$1,453,490–oftheplantwhenBritishAmericanTobacco(Eritrea)ShareCompanypurchaseditfromGashCigaretteFactoryinMarch1998 .The
572 ERITREA/ETHIOPIA
Commissiondeniesthecompensationclaimfordestructionofthefacilitiesforlackofe�idence .Incomparison,Eritreabaseditslootingclaimonthedetailedandsignedin�entorypreparedbythegeneralmanageroftheplantin2000 .TheCommissionawardscompensationforlootedpropertyattheplantintheamountofUS$210,000,aftercon�ersionatthe2000exchangerate .
188 . Other Tokombia Town Building Claims.TheCommissionnextexam-inesEritrea’scompensationclaims,totalingapproximatelyERN180millionplusUS$200,000,for75%ofthedamageallegedlycausedbythelootingofthirteenotherbuildingsorgroupsofbuildingsinTokombiaTown:theHealthCenter,LalaiGashSub-ZobaAdministrationOffice,Sub-ZobaCourthouse,WaterSup-ply,schools,MinistryofAgriculture,ERRECfacilities,Sub-ZobaPDFJOffice,ShemshemiaFarm,NationalConfederationofEritreanWorkersHandiworksShop,NUEYSBranchOffice,Totalstationand�egetablemarket .
189 . The Commission finds �irtually all of Eritrea’s Tokombia Build-ingClaimsseriouslydeficient .Eritrea’slargestclaim—fi�etimestheamountsoughtfordamagetotheRothmanTobaccoPlant—wasforo�ertenmillionnakfaforphysicalandeconomicdamagetoShemshemiaFarm,amajorfarmprojectsponsoredbytheNationalConferenceofEritreanWorkersontheGashRi�er .E�enassumingEritrea’sclaimsforallegedlylooting-relatedbuildingrepairsandlostprofitswouldbecompensable,theShemshemiaFarmitselfisoutsideofTokombiaTownandhenceoutsideofthescopeoftheWesternFrontPartialAward .TheCommissionawardsonlyUS$15,000forthereplacementin2001ofwindowsanddoorslootedfromthefarmtrainingfacilitylocatedinTokombiaTown .
190 . EthiopiaobjectedtoEritrea’sclaimforalmostfi�emillionnakfaforlootinganddamagetotheLalaiGashSub-ZobaAdministrati�eOffice,includingthecostsofrepairingbuildingsinAwgarotoser�eastemporaryadministrati�e offices and house employees, on grounds that Eritrea wasindirectlyseekingcompensationfordamagetobuildingsinAwgarodespitetheCommission’srefusaltofindliabilityforsuchdamage .TheCommissionagrees,andsoawardsonlyUS$45,000forreplacementoflootedmo�ableprop-ertyintheTokombiaAdministrati�eOffice,consistentwiththeamountintheGash-BarkaRapidAssessmentReport .Inotherinstances(forexample,fortheMinistryofAgricultureandschools),theCommissionalsoawardscompensa-tionforlootingandlooted-relatedpropertyrepairamountsconsistentwiththatReport .
191 . WhereEritrea’se�idencereflectedestimatedconstructioncostsonlydistantlyconnectedtowartimelooting,theCommissiondisallowsthem;forexample,EritreacandidlystatedthatsomefourmillionnakfawouldbenecessarytorebuildtheTokombiamarketplacebecause“exposuretotheele-mentshadexacerbatedthedamage[ofstripping]o�ertime .”42Asinse�eralother regions, the Commission limits compensation for the Water Supply
42 ERDamagesGroupOneMemorial,AnnexC,p .3063 .
partxvii—FinalAWARD eritrea’sdamagesclaims 573
structuretotheestimatedcostofreplacingpumps,pipesandfittingsthatwerelooted .
192 . Based on its detailed re�iew of the e�idence, the CommissionawardsEritreacompensationintheamountofUS$475,000forthe lootingof the listedbuildings inTokombiaTownduringEthiopia’soccupation inMay2000 .AddingtheamountsawardedforthePoliceStationandRothmanTobaccoPlant,thetotalawardedforEritrea’sTokombiaTownBuildingClaimsisUS$730,000 .
193 . In sum, the total compensation awarded for Eritrea’s BuildingClaimsfortheWesternFrontisUS$22,825,000 .
6. Total Award for Building Claims
194 . To conclude this section of the Award, the total compensationawardedforEritrea’sBuildingClaimsfortheCentralandWesternFrontsisUS$35,965,000 .
d. Claim for Consequential damages
1. Eritrea’s Claim
195 . Inthedamagesphase,EritreaclaimedUS$400millionasconse-quentialdamages,reflectingUS$500perpersonfor800,000indi�idualsalleg-edlyinjuredbyEthiopianconductforwhichtheCommissionfoundliability .EritreacontendedthatEthiopiacarriedoutaconcertedanddeliberatepro-gramtodestroyci�ilianinfrastructureinareasthatEthiopianforcestransitedoroccupiedduringoraftertheir2000in�asionofEritrea,causingextensi�econsequentialinjurytoe�eryresidentintheseareas,andtosomepeopleinadjoiningareas .AsexplainedbyEritrea’scounsel:“Wearepositingthat�irtu-allye�eryoneintheoccupiedterritories,�irtuallye�eryoneontheperipheryoftheoccupiedterritories,e�eryonewithintheser�iceareaoftheseessentialfacilitieswereinjured .”43
196 . Eritreaclaimedfourtypesofdamage .First,itclaimedthatmanychildren, and their families, were injured by destruction of or damage toschoolsandothereducationalfacilities .Second,Eritreacitedeconomicinjuryresultingfromthedestructionoftelecommunicationsandotherinfrastruc-ture .Third,itmaintainedthatpeopleinaffectedareassufferedfromunem-ployment,po�ertyandotherinjuriesfromthede�astationofthelocaleconomycausedbyEthiopianmisconduct .Finally,itclaimedthatitscitizenssufferedfromlossofaccesstohealthcareduetoEthiopia’sdestructionorlootingof
43 TranscriptoftheEritrea-EthiopiaClaimsCommissionHearingsofApril2007,PeacePalace,TheHague,atp .789(ProfessorBrilmayer)(April24,2007) .
574 ERITREA/ETHIOPIA
hospitals,clinics,localmedicalcenters,pharmacies,safewatersuppliesandotherinfrastructurerelatedtomedicalcareandpublichealth .
197 . Eritreacontendedthat,gi�enthisper�asi�edamageaffectinghun-dredsofthousandsofpeople, itwasnotfeasibletoquantifyinjurytoeachindi�idual .ItthereforeaskedtheCommissiontoawardUS$500inrespectofeachresidentoflargeareasofEritrea .EritreaemphasizedinthisregardArticle5(10)oftheDecember2000Agreement,authorizingtheCommission“toadoptsuchmethodsofefficientclaimsmanagementandmassclaimsprocessingasitdeemsappropriate . . . .”Eritreacontendedthatforthisclaim,theCommissionshouldauthorizeareducedstandardofproofofindi�idualharm,asatrade-offforasignificantlyreducedle�elofcompensation .
198 . Eritreacontendedthatthecharacterandextentofthedestructionofci�ilianinfrastructurebyEthiopianforcespro�edboththatthedestruc-tionwasintentional,andthatitwasintendedtoinjuretheci�ilianpopula-tion .InEritrea’s�iew,thisestablishedaproximatecausalconnectionbetweentheclaimedinjuriesandEthiopia’sdelicts,becauseanyinjuryintentionallyinflictedmustbeproximatelycaused .Eritrea’scounselcontendedthatitwasnotnecessaryfortheCommissiontoha�efoundsuchintentionattheliabilityphase,andthatitcouldnowdrawtherequisiteinferencesregardingEthiopia’sintentionsatthedamagesphase .
199 . Eritreaalsoarguedthatmuchofthedamagetoci�ilianinfrastruc-ture�iolatedArticle54ofAdditionalProtocolItotheGene�aCon�entions(“ProtocolI”),44prohibitingattackingordestroying“objectsindispensabletothesur�i�aloftheci�ilianpopulation,suchasfoodstuffs,agriculturalareas . . .crops,li�estock,drinkingwaterinstallationsandsuppliesandirrigationworks,forthespecificpurposeofdenyingthemfortheirsustenance�aluetotheci�ilianpopulation .”(WhileProtocolIwasnotinforcebetweenthePar-ties,theCommissionhasfoundthatitlargelyreflectscustomaryinternationallaw .45)InEritrea’s�iew,theelementsofthisclaim,especiallydamagetomedi-calser�ices,fellwithintheambitofArticle54and,cumulati�ely,Ethiopia’sconductcausedabreakdownofsystemsrequiredtosustainhumanlifein�io-lationofArticle54 .
2. Ethiopia’s Response
200 . In Ethiopia’s �iew, Eritrea’s consequential damages claim waslargelyareassertionofEritreanclaimsthattheCommissionrejectedattheliabilityphase .Howe�er,someofEritrea’sarguments,particularlyitsin�oca-
44 Supra note25 .45 E.g.,PartialAwardinEritrea’sCentralFrontClaims,para .23;PartialAward,
CentralFront,Ethiopia’sClaim2BetweentheFederalDemocraticRepublicofEthiopiaandtheStateofEritrea(April28,2004)[hereinafterPartialAwardinEthiopia’sCentralFrontClaims],para .17 .
partxvii—FinalAWARD eritrea’sdamagesclaims 575
tionofArticle54ofProtocolI,weresaidtobenewclaimsinadmissibleatthedamagesphase .(UnderArticle5(8)oftheDecember2000Agreement,allclaimshadtobefiledbyDecember12,2001 .)EthiopiaalsocontendedthatEri-treadidnotpresente�idencepro�ingthatanycompensabledamageresultedfromtheconductalleged .
201 . Ethiopiaalsocontendedthattherele�antpopulationscouldnotexceedthe98,619personsidentifiedinEritrea’scensusasli�ingintheele�entownsand�illagesandthepartialsub-zobacitedintheCommission’sliabilityfindings,ratherthanthe800,000personsEritreaclaimed .Ethiopiaempha-sizedinthisregardthatEritreaclaimedconsequentialdamagesforlargeareasforwhichtheCommissionmadenoliabilityfindings,includingsomesub-zobaswheretheCommissionrejectedEritrea’sclaims .
3. The Commission’s Conclusions
202 . Admissibility.TheCommissiondoesnotconsiderEritrea’srequestforconsequentialdamagestobeanewclaimofliability .Instead,theCom-missionunderstandsEritreatorequestthat,whendeterminingcompensationforsomeofitspriorfindingsofEthiopia’sliability,theCommissionshouldincludecompensationfortheselossesasreasonablyforeseeableconsequencesoftheunlawfulactsinquestion .
203 . Eritrea presented this as a claim for “consequential damages .”Howe�er,internationallawdoesnotrecognizeaseparatecategoryofcompen-sable“consequentialdamages”in�ol�ingdifferentstandardsoflegalcausationorotherdistincti�elegalelements .Theconceptofconsequentialdamageshasasignificantroleinsomenationallegalsystems,butdoesnotexistinothers,andsocannotbe�iewedasageneralprincipleoflaw .Similarly,theconcepthasnotbeenrecognizedininternationalproceedingsasaseparateformofcom-pensableinjuryasEritreaad�ocates .TheCommissionthusdoesnotassignparticularlegalsignificancetoEritrea’scharacterizationofcertaintypesofdamagesas“consequential .”Itinsteadexaminesthisclaiminaccordancewiththeprinciplesgenerallyapplicableindeterminingdamagesininternationalclaims .TheCommissionnotesinthisregardthatthisclaimseekslargesumsin addition tothoseEritreaclaimsforthecostsofrepairingorreplacingdam-agedordestroyedbuildingsorotherinfrastructureforwhichtheCommissionhasfoundliability .
204 . Education.As toEritrea’sclaimforadditionaldamagesreflect-ingdisruptionofitseducationsystem,theCommissionrecognizesthatmanychildren’seducation,andtheirfamilies’plans,weredisruptedbydamagetoschoolsattributabletoEthiopia .(Therecordalsoincludese�idencethatEri-treaneducatorsandtheirpupilsoftendisplayedadmirableinitiati�eandresil-ienceinthefaceofad�ersity .)Howe�er,Eritrea’sDamagesMemorialmadenoseriousattempttoidentifythenumberofstudentsaffected,toquantifytheextentofdisruption,ortoassessanyfinancialorotherconsequences .The
576 ERITREA/ETHIOPIA
argumentationande�idencesubmittedtosupportthisportionoftheclaimwasanecdotalorconclusory .Atthehearing,Eritreaacknowledgedthedif-ficultiesanduncertaintiesofattemptingtoassessanyquantumofdamagesassociatedwithdisruptionofeducation .
205 . Gi�enthepaucityoftherecord,andtheuncertaintiesofquanti-fyinginjuryofthekindEritreaasserts,thiscomponentofEritrea’sclaimforfixed-sumdamagesinrespectofhundredsofthousandsofpeoplefails forlackofproof .TheCommissionalsonotesthat,incontrastwithitsargumentsregardingmedicalcarediscussedbelow,Eritreadidnotcontendthatinterna-tionallawrulesextendspecialprotectiontoeducationinthecontextofarmedconflictoritsaftermath .
206 . Damage to Electrical and Telecommunications Infrastructure. Eri-treaalsoclaimedadditionaldamagesonaccountofinjuryallegedlyexperi-encedbyhundredsofthousandsofpersonsduetothedestructionofelectricalandtelecommunicationsinfrastructure .Thesupportingargumentationande�idence,presentedinlessthanthreepagesofEritrea’sDamagesMemorial,againwasconclusoryoranecdotal .Thee�idencewasnotsufficienttoestablishentitlementtocompensationgoingbeyondtheamountsdueforthedestruc-tionofthefacilitiesthemsel�espursuanttoEritrea’sotherclaims .Thiscom-ponentalsofailsforlackofproof .
207 . Adverse Economic Conditions.Eritrea’sclaimforadditionaldam-agesstemmingfromthegeneralizeddeclineineconomicconditionsattrib-utedtoEthiopia’sdestructionofinfrastructurealsomustfail .Pasttribunalsha�enotfoundgeneralizedconditionsofwar-relatedeconomicdisruptionanddeclinetoconstitutecompensableelementsofdamage,e�eninthecaseofsometypesofinjurybearingarelati�elycloseconnectiontoillegalconduct,suchastheincreaseinmaritimeinsuranceratesrejectedbytheAlabamaTribunal .CounselforEritreaacknowledgedinthisregardthattheGene�aCon�entionsandProtocolIdonotencompassprotectionoftheeconomywritlarge .46
208 . Loss of Access to Medical Care. Eritrea’sclaimforadditionalcom-pensationforinjurytotheci�ilianpopulationonaccountofdamagetoordestructionofmedicalfacilitiesforwhichtheCommissionfoundEthiopialiable requires fuller consideration . The Commission found such liabilityregardingnumerousmedicalfacilitiesinEritrea,includingsubstantialdam-agetoallthreeregionalhospitalsintheaffectedareasandtoothersignificantfacilities .Ethiopiawasfoundliablefor90%oftheextensi�edamagetothefifty-bedregionalhospitalatSenafe .Itwasfoundliableforallowing“breaking,enteringandlooting”ofgo�ernmentbuildingsinthetownofBarentu,includ-ingasecondregionalhospital thatwas lootedandpartiallyburned .TherewasliabilityforallowinglootingandburningofthethirdregionalhospitalinTeseney .TheCommissionalsoexplicitlyfoundEthiopialiablefordestruction
46 TranscriptoftheEritrea-EthiopiaClaimsCommissionHearingsofApril2007,PeacePalace,TheHague,atpp .773–774(ProfessorCrawford)(April24,2007) .
partxvii—FinalAWARD eritrea’sdamagesclaims 577
oftheSub-ZobaHealthCenterinTseronaTown .ThethreeregionalhospitalsweretheonlyfacilitiesinalargeareaofEritreathatcouldtreatseriouscondi-tionsrequiringinpatientsurgeryorotherad�ancedcare .
209 .TheCommissionalsomadefindingsofliabilitythatembracedloot-ingordestructionofhealthcentersandclinicsinotherlocations .ItfoundliabilityforpermittinglootinginTabaldia(wherethePartialAwardcitede�i-dencedescribinglootingofappliances,bedsandmedicinesfromthemedicalclinic) .ItfoundliabilityfordestroyingmostofthestructuresinGuluj,wheretherewasahealthcenter .ComparablefindingsweremadewithregardtotheentireMolkiSub-Zoba,tothebordertownofOmhajer,andtothe�illagesofGulujandSerha,allofwhichhadhealthcentersorclinicspriortothewar .
210 . The Commission belie�es that, in these factual circumstances,injuriestoEritrea’snationalsresultingfromlossofaccesstomedicalcareonaccountofunlawfuldestructionordamagetomedicalfacilitiesshouldbecon-sideredinassessingcompensation .Inreachingthisconclusion,theCommis-sionhasgi�enweighttotheextenttowhichinternationalhumanitarianlawaccordsspecialprotectiontomedicalfacilitiesandmedicalpersonnel,andtopatientsneedingmedicalcare .TheseprotectionswerepresumablyfamiliartoEthiopia’smilitarycommanders,who,Ethiopiamaintained,werealltrainedintheprinciplesofhumanitarianlaw .Theyshouldha�eledcommanderstorecognizethelikelyconsequencesforci�iliansofwidespreaddamagetomedi-calfacilitiesandlossofmedicalsupplies .
211 . Numerouspro�isionsofhumanitarianlawhighlighttheimpor-tanceofprotectingmedicalfacilitiesandser�ices,andofassuringtheirabil-ity tooperate .Article18of theFourthGene�aCon�ention47pro�ides that“[c]i�ilianhospitalsorganizedtogi�ecaretothewoundedandsick,theinfirmandmaternitycases,mayinnocircumstancesbetheobjectofattack,butshallatalltimesberespectedandprotected . . . .”Article20requiresrespectandprotectionforpersonssolelyengagedinoperatingandadministeringci�il-ianhospitals .Article23requirespartiestoallowfreepassageofmedicalandhospitalstoresintendedforci�ilians .Article55requiresanOccupyingPowertoensurethea�ailabilityofmedicalsuppliestotheci�ilianpopulation“tothefullestextentofthemeansa�ailabletoit,”andbarsrequisitioningofsuchsup-pliesexceptunderlimitedconditions .Article12ofProtocolIdirectsthatmed-icalunits“berespectedandprotectedatalltimesandshallnotbetheobjectofattack .”(“Medicalunits”arebroadlydefinedtoincludeci�ilianhospitals,pre�enti�emedicinecenters,andothertypesofci�ilianfacilities .)Article15ofProtocolIlikewiserequiresthatci�ilianmedicalpersonnelbe“respectedandprotected .”
212 . Thesetreatypro�isionsprotectingmedicalfacilities,andotherslikethem,appearininstrumentsconcludedbetweenStates .Howe�er,theydo
47 Gene�aCon�entionRelati�etotheProtectionofCi�ilianPersonsinTimeofWar,Aug .12,1949,6U .S .T .p .3516,75U .N .T .S .p .287[hereinafterGene�aIV] .
578 ERITREA/ETHIOPIA
notexistprimarilytoprotectStates’interestsorproperty .Instead,theirfun-damentalpurposeistopro�ideprotectiontoindi�idualscaughtupinarmedconflictoritsaftermath .Theycumulati�elyaimtoassurethatthewoundedandsick“recei�e,tothefullestextentpracticableandwiththeleastpossibledelay,themedicalcareandattentionrequiredbytheircondition .”48
213 . Eritreasoughttoreinforceitsclaimbyin�okingArticle54ofPro-tocolI,dealingwithprotectionoffoodstuffs,drinkingwatersupplies,andotherobjectsindispensabletothesur�i�aloftheci�ilianpopulation .Ethiopiaresponded,inter alia,thatthiswasaninadmissiblenewclaim .Eritreainturninsistedthatithadpre�iouslyidentifiedArticle54asabasisforitsclaims .WhetherornottheearlierpleadingsmentionedArticle54,theCommissiondidnotpre�iouslyfindEthiopialiablefor�iolatingthatarticle,andcannotatthislatestageassignadditionalliabilitybasedonsuchabreach .Inanycase,otherpro�isionsofhumanitarianlawcitedabo�econfirmtheprotectionofmedicalfacilitiesmoreexplicitlythandoesArticle54,andtheCommissionneednotdecidewhetherthatarticlemightpro�ideanadditionallayerofpro-tection .Thisisparticularlysoastherehasbeennoconsideredbriefingorargu-mentbythePartiesregardingStatepractice,negotiatinghistory,commenta-tors’�iewsandotherconsiderationspotentiallybearingupontheissue .
214 . Asnotedabo�e,Eritreaarguedthatanyinjuriesapartyintendsareproximatelycaused,thatthecharacterofthedamagetoci�ilianinfrastructureshowedthatEthiopiaintendedtoharmci�iliansandthatEthiopiathereforewasliableforalltheresultinginjurytoci�ilians .Ethiopiadeniedanysuchintent .Again,itisnotnecessaryfortheCommissiontopassuponthislineofargument .Internationalhumanitarianlawprotectshospitalsandothermedi-calfacilitiesandtheci�ilianswhodependonthem .Wherethereiswidespreadunlawfuldamagetosuchfacilities,particularlyinanareawheretheyarefewinnumber,itshouldbereasonablyforeseeabletotheforcesoftheoffendingpartythatinjurywillresulttoprotectedpersons .Thechallengeliesinassess-ingtheextentofthatinjury,notinfindingtherequisitecausalconnection .
215 . Therewase�idenceshowingthatEritreanhospitalsdrewpatientsfrombroadareas,extendingwellbeyondthecommunitieswheretheywerelocated . Howe�er, the record did not pro�ide much detail regarding thenumberofpatientswhopre�iouslyusedthedamagedfacilitiesor(exceptinthecaseofthehospitalatSenafe)thelengthoftimetheywereoutofser�iceoroperatedatreducedcapacity .TheCommissionheardtestimonyfromaseniorhospitaladministratorthatduringmanymonthswhilethehospitalatBarentuwasoutofser�ice,manypatientshadtomakedifficultjourneystoanalternatelocation,includingmanypersonswhowerequiteill,womenexperiencingdif-ficultbirths,andlandmine�ictims .Howe�er,thewitnesscouldnotquantifyhowmanypersonswereaffected .
48 ProtocolI,supra note25,art .10 .
partxvii—FinalAWARD eritrea’sdamagesclaims 579
216 . Theselimitationsoftherecordha�erequiredtheCommissiontoestimatetheextenttowhichEritreanci�ilianswereinjuredonaccountoflossofaccesstomedicalcare .Takingaccountofalltherele�antcircumstances,theCommissionawardsEritreaUS$1,500,000ascompensationinrespectofinjuriestoci�iliansduetolossofaccesstohealthcareonaccountofdamagetoordestructionofEritreanhospitalsandothermedicalfacilitiesandlossofmedicalsupplies .
e. damage to Cultural Property
1. Stela of Matara
217 . Attheliabilityphase,theCommissionfoundEthiopialiable“[f]orpermitting,whileoccupyingthearea,deliberatedamagebyexplosiontotheStelaofMatara,anancientmonumentintheSenafeSub-Zoba .”49
218 . TheStelaisastoneobelisk,perhaps2,500yearsold,car�edwiththesymbolofthesuno�erthecrescentmoonandaninscriptioninGe’ez .TheStela,apparentlytheonlysuchartifactinEritrea,islocatedinthearcheologi-calsiteofMatara(orMetera),nearSenafe .Itwaslocatedclosetoaroad,andwasnothea�ilyfencedorotherwiseprotected .TheCommissionfoundthattheobeliskwasseriouslydamagedbyexplosi�echargesplacedatitsbaseduringEthiopia’sMay2000offensi�e .
219 . TheexplosiondestroyedalloftheStelabelowgroundle�elanditslowerportionabo�eground .Thedestroyedsectionwasreplacedwithlocallyquarriedstonecuttomatchthepre�iousmaterial,someofwhichwasnotorig-inal,buttheresultofearlierrepairs .TheStela’sintactupperportion,contain-ingthehistoricinscriptions,thenwasattachedtothenewlycutlowerportion .Localandinternationalartisanscarriedoutthiswork,assistedbyUNESCO .ThisworkrestoredtheStelatosubstantiallyitspre�iousappearance,butasignificantportionoftheoriginalstonewaslost .
220 . The repair and restoration work cost 450,106 nakfa . Ethiopiaacceptedthisasanappropriatemeasureofcompensation,althoughitreser�editspositionregardingthetreatmentofaUS$25,000donationfromUNESCOandaUS$6,000WorldBankloanusedtosupportthework .Italsoexpressedreser�ationsregardingcostsofsomeworkrequiredtorepairearlierrepairs .
221 . EritreaalsoclaimedUS$8,000,000asadditionalcompensationfordamagetoasignificantculturalmonument .EritreachosethisamountbecauseitwastheamountexpendedbyEthiopiainitsmulti-yearefforttoreco�erthetwenty-fourmetertallObeliskofAxumfromRome .Ethiopia�igorouslydis-putedthisadditionalclaim,maintainingthatithadnolegalbasisandwasinfactaclaimforpuniti�edamages .
49 PartialAwardinEritrea’sCentralFrontClaims,dispositif,SectionV .D .8 .
580 ERITREA/ETHIOPIA
222 . TheCommissiondoesnotbelie�ethatEthiopia’sexpendituresforthereturnoftheObeliskofAxumpro�ideananalogousmeasureforassess-ingcompensation .Atthesametime,theCommissionbelie�esthatseriousdamagetoasignificantobjectofculturalpatrimonywarrantssomeawardofcompensationgoingbeyondthemerecostsofattemptingtorestoretheobjecttoitsearlierappearance .Thisissoe�enthoughthereisnoe�idencethatthedecisiontodamagetheStelain�ol�edanyoneotherthanoneormorelow-rankingsoldiers .
223 . Accordingly,theCommissionawardsEritreatheamountsexpend-edtoattempttorestoretheStela,plusanadditionalamounttoreflect,inpart,theuniqueculturalsignificanceoftheStela,foratotalawardofUS$50,000 .
2. Tserona Patriots Cemetery
224 . TheCommissionfoundEthiopiaresponsibleforpermittingthelooting and stripping of the Tserona Patriots (or Martyrs) Cemetery, andfounditliablefor75%ofthetotaldamagecaused .50
225 . Eritreapresentedsubstantiale�idenceof thedesecrationof theTseronaPatriotsCemeteryattheliabilityphase .Inthedamagesphase,Erit-reaquantifiedtheallowable75%ofthisdamageat750,000nakfa,forlootingandstrippingthefence,metal�aults,themetalcemeterybuilding(whichcol-lapsed),onethousandmangotreesthathadbeenplantedasmemorials,andthecaretaker’stools .The2005estimateofthenecessaryrepairandreplace-mentcostswasskeletal,anddocumentarye�idenceshowedthattheNationalUnionofEritreanWomenfundedreconstructionofthefenceforERN150,896in2003 .Ethiopiadidnotpresentaspecificdefense .
226 . Balancingtherelati�elyweake�identiaryrecordagainstthese�er-ityofthe�iolationofinternationallaw,andnotingthattotalcompensationhas already been reduced by 25% in the liability Award, the CommissionawardsthefullERN750,000claimed,con�ertedatthe2005exchangeratetoUS$50,000 .
f. Prisoners of War
1. The Commission’s Liability Findings
227 . InitsPartialAwarddatedJuly1,2003inEritrea’sPrisonersofWarClaim17,theCommissionfoundEthiopialiableforthefollowingeight�io-lationsof international lawcommittedby itsmilitarypersonnelandotherofficialsoftheStateofEthiopia:
50 Id.,SectionV .D .2 .
partxvii—FinalAWARD eritrea’sdamagesclaims 581
1 . Forfailingtotakeeffecti�emeasurestopre�entincidentsofbeatingorotherunlawfulabuseofEritreanPOWsatcaptureoritsimmediateafter-math;2 . Forfrequentlydepri�ingEritreanPOWsoffootwearduringlongwalksfromtheplaceofcapturetothefirstplaceofdetention;3 . ForfailingtoprotectthepersonalpropertyofEritreanPOWs;4 . For subjecting Eritrean POWs to enforced indoctrination from July1998toNo�ember2002inthecampsatBilate,MaiChew,MaiKenetalandDedessa;5 . ForpermittinghealthconditionsatMaiKenetaltobesuchasseriouslyandad�erselytoaffectorendangerthehealthoftheEritreanPOWsconfinedthere;6 . Forpro�idingallEritreanPOWspriortoDecember2000adietthatwasseriouslydeficientinnutrition;7 . For failingtopro�idethestandardofmedicalcarerequiredforEri-treanPOWs,particularlyatMaiKenetal,andforfailingtopro�iderequiredpre�enti�ecarebysegregating fromtheoutsetprisonerswith infectiousdiseasesandbyconductingregularphysicalexaminations,fromMay1998untilDecember2000;and8 . Fordelayingtherepatriationof1,287EritreanPOWsin2002forse�-enty-se�endayslongerthanwasreasonablyrequired .51
2. The Commission’s Conclusions
228 . WhilebothPartiesrequestedfixed-sumdamagesascompensa-tionforcertain�iolationsofinternationalhumanitarianlawthattheCom-missionfoundduringtheliabilityphaseinrelationtoPOWs,theCommissionhasdecidedonadifferentmannerofassessingtheappropriatecompensation .Toaconsiderableextent,thisdecisionflowsfromtheCommission’sgeneralapproachtoitsdeterminationsofliability .TheCommissionseesitstasknotasbeingtodetermineliabilityforeachindi�idualincidentofillegalitysuggestedbythee�idence,butratherasbeingtodetermineliabilityforserious�iolationsofthelaw .Theseareusuallyillegalactsoromissionsthatwerefrequentorper�asi�eandconsequentlyaffectedsignificantnumbersof�ictims .
229 . TheclaimsbeforetheCommissionaretheclaimsoftheParties,nottheclaimsofindi�idual�ictims .ParticularlywhendecidingdamagesowingforunlawfultreatmentofPOWs,thosedamagescanappropriatelybeassessedonlyfortheClaimantState,becausefixed-sumdamagesdesignedtobedistrib-utedtoeachindi�idualwhowasaprisonerofwarwouldnotreflectthepropercompensationforthatindi�idual .DifferentPOWswereheldunderdifferentconditionsat�ariouscampsfor�ariousperiodsoftime .Somewereinjuredin
51 PartialAward,PrisonersofWar,Eritrea’sClaim17betweentheStateofEritreaandtheFederalDemocraticRepublicofEthiopia(July1,2003),dispositif,SectionV .D .
582 ERITREA/ETHIOPIA
thecamps,andsomediedofthoseinjuries .Otherswereaffectedad�erselyinotherwaysthat�ariedfromindi�idualtoindi�idual .WhiletheCommissionencouragesthePartiestocompensateappropriatelytheindi�idual�ictimsofwarfare,itcalculatesthedamagesowedbyonePartytotheother,includingformistreatmentofPOWs,onthebasisofitse�aluationofthee�idencewithrespecttotheseriousnessoftheunlawfulactsoromissions,thetotalnumbersofprobable�ictimsofthoseunlawfulactsoromissions(wherethosenumberscanbeidentifiedwithreasonablecertainty)andtheextentoftheinjuryordamagesufferedbecauseofthoseunlawfulactsoromissions .
230 . SeriousnessoftheViolations.WhiledamagesmustbeawardedforallPOW�iolations,theCommissionfindsthat�iolationnumbers1,4,5,6and7werethemostseriousandrequirethehea�iestdamages .Withrespectto�iolationnumber1,thee�idencefellshortofshowingthatsuchunlawfulabusewaspermittedbyEthiopia,butEthiopiawasheldliableforfailingtotakeeffecti�emeasurestopre�entit,afailurethathadseriousad�ersecon-sequencesforthe�ictims .Withrespectto�iolationnumber4,thee�idenceindicatedthatthesegregationofdifferentgroupsofPOWs,accompaniedbytheenforcedindoctrinationofEritreanPOWsandtherelatedpressurestomakeself-criticisms,had long-lastingad�erseeffectson thementalhealthofmanyPOWs .Withrespectto�iolationnumbers5,6and7,thefailuretopro�ideadequatedietandhealthcareforPOWswereserious�iolationsthatad�erselyaffectedallPOWs .WhiletheextremelyunsatisfactoryconditionsatMaiKenetalexistedforalimitedtime,theotherinadequaciescontinuedthroughoutthelongdetentionofmanyPOWs .
231 . NumbersofVictims.Approximately2,600EritreansweredetainedasPOWsduringthearmedconflict .PriortoMay2000theirnumberstotaledonlyafewhundred,butbetweenAugust2000andNo�ember29,2002largenumberswereheldbyEthiopia .Thefinal1,287werereleasedse�enty-se�endayslaterthantheyshouldha�ebeenheld .
232 . SeriousnessofInjuries.Thee�idenceindicatesthatmanyPOWssufferedlong-lastingdamagetotheirphysicalandmentalhealthasaresultofthe�iolationsofinternationallawfromwhichtheysuffered .
233 . Award .WhilethePOW�iolationsforwhichEthiopiaisliablewerenot,asawhole,asseriousaswerethoseforwhichtheCommissionfindsErit-realiable,thegreaternumberofEritrean�ictimsmustbetakenintoaccount .On the basis of the abo�e considerations, the Commission awards EritreaUS$4,000,000fortheunlawfultreatmentofEritreanPOWs .
G. rape234 . AsitdidinconnectionwithitslimitedfindingsinbothParties’
claimsof liability forrape, theCommissionconsiders that thequestionofdamagesconnectedtoincidentsofrapedeser�esseparategeneralcomment .AlthoughtheCommissionreiteratesitsgratificationthat“therewasnosug-
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gestion,muchlesse�idence,thateitherEthiopiaorEritreausedrape,forcedpregnancyorothersexual�iolenceasaninstrumentofwar,”52theCommis-siondidfinde�idencethatbothPartiesfailedtoimposeeffecti�emeasures,asrequiredbyinternationalhumanitarianlaw,topre�ent“se�eral”rapesofci�il-ianwomenandgirlsincertainareas .TheCommission,whichacknowledgedtheculturalsensiti�itiessurroundingrapeinbothcountriesandtheunwill-ingnessof�ictimstocomeforward,hasnoillusionthattherecordbeforeitre�ealsthefullscopeofrapeduringtheextendedarmedconflict .TheCom-missionisacutelyawarethatthefullnumberof�ictimsandthefullmagnitudeoftheharmtheysufferedcannotandwillnote�erbeknown .
235 . ItisthereforeperhapspredictablethateachPartyfailedtopro�eitsdamagesclaimforrape,eitherastoareasonablenumberof�ictimsorastoareasonablemeasureofeconomicharm .NordidthePartiespro�idetheCom-missionwithanagreedorusefulmethodologyforassessingcompensation .
236 . IntheEritreanCentralFrontandWesternFrontPartialAwards,respecti�ely,theCommissionfoundEthiopialiablefor“failuretotakeeffec-ti�emeasurestopre�entrapeofwomenbyitssoldiersduringtheoccupationofSenafeTown”53and“failuretotakeeffecti�emeasurestopre�enttherapeofwomeninthetownsofBarentuandTeseney .54Ratherthanproposing�ic-tim-specificdamages,EritreaoriginallyproposedthateachPartysetasideUS$500,000toUS$1,000,000foritsownlocallyadministeredprogramsforwomen’shealthcareandsupportser�icesintheareaswheretheCommissionfoundliabilityforrape .Ethiopiadidnotagreetoself-administeredprogramsand,instead,useditsgeneralmethodologytoclaimmaterialandmoraldam-agestotalingUS$6,739,641,estimatingthat1%ofthepre-warfemalepopula-tionsufferedrapeintheaffectedareasand,asaresult,lost50%ofa�eragelifetimeearningsandsufferedmoraldamage .EritreasubsequentlyrequestedanawardofUS$6,750,000 .
237 . TheCommissioncannotassessEritrea’sfinal request for relief,becauseEritreapresenteditsnumberwithoutexplanation .TheCommissionhadquestionedEritreaastotheadequacyofamountsaslowasUS$500,000-$1,000,000tosupportrape�ictims .TheCommissioncanonlyassumethatEritrea made its request for US$6,750,000 to match the number Ethiopiareachedwithitsmathematicalmethodology,whichtheCommissionrejectsinEthiopia’sparallelAward .
238 . DespitetheshortcomingsoftheParties’damagesmethodologies,theCommissionconsidersthatthisserious�iolationofinternationalhumani-tarianlawdemandsseriousrelief .Neithersymbolicnornominaldamageswill
52 E.g.,PartialAwardinEthiopia’sCentralFrontClaims,para .34;PartialAwardinEritrea’sCentralFrontClaims,para .36 .
53 PartialAwardinEritrea’sCentralFrontClaims,dispositif,SectionV .D .5 .54 PartialAwardinEritrea’sWesternFrontandRelatedClaims,dispositif,Section
IV .M .2 .k .
584 ERITREA/ETHIOPIA
sufficeinthefaceofthephysical,mentalandemotionalharmknowntobesufferedbyrape�ictims .
239 . Accordingly,theCommissionawardsEritrea(asitdoesEthiopiainitsparallelAward)US$2,000,000indamagesforfailingtopre�enttherapeofknownandunknown�ictimsinthetownsofSenafe,BarentuandTeseney .Insodoing,theCommissionexpressesthehopethatEritrea(andEthiopia)willusethefundsawardedtode�elopandsupporthealthprogramsforwomenandgirlsintheaffectedareas .
H. displacement of the Population of awgaro
1. Eritrea’s Claim
240 . In itsPartialAwardofDecember19,2005 inEritrea’sWesternFront,AerialBombardmentandRelatedClaims,theCommissionfoundEthi-opialiablefortheforcibledisplacementofthepopulationofAwgaroduringEthiopia’sMay2000attackonEritrea:
TheRespondentisliabletotheClaimantfortheunlawfuldisplacementofalltheresidentsofAwgaroin�iolationofArticle49ofGene�aCon�entionIV .55
Pursuanttothisfinding,EritrearequestedafixedamountofUS$500perper-sonfor3,100personsallegedlyexpelled,whichtotalsUS$1,550,000,plustheadditionalfixed-sumamountofUS$500perpersonforlostproperty .
2. Ethiopia’s Response
241 . Ethiopiaagreedthatitwasappropriatetoutilizeafixedpercapitasumtodeterminecompensationinthissituation,whereadefinedgroupofpeopleallsufferedsimilarlegalinjury .Howe�er,itcontendedthatcompen-sationshouldbedeterminedwithreferencetoamuchsmallergroupofper-sons,andthatthepercapitasumshouldbesmaller .InEthiopia’s�iew,theCommission’sfindingofliabilityappliedonlytopersonsresidingwithinthelegalboundariesofthe�illageofAwgaro,notthesurroundingarea .EthiopiacitedEritreancensusfiguresgi�ingthe�illage’s2000populationas1,154,notthe3,100personsclaimedbyEritrea .Itmultipliedthisnumberbythea�er-ageannualincomeofpersonsinnearbyareasofEthiopia(US$182),slightlyincreasedbecausethea�erageexpelleewasabsentforaboutthirteenmonths .Onthisbasis,Ethiopiacontended thatcompensationshouldbe limited toapproximatelyUS$231,000 .
242 . EthiopiaalsoobjectedtoEritrea’sseekingadditionalfixed-sumamountsforlostpropertyforthefirsttimeatthedamagesphase .Ethiopia
55 PartialAwardinEritrea’sWesternFrontandRelatedClaims,dispositif,SectionVIII .E .2 .b .
partxvii—FinalAWARD eritrea’sdamagesclaims 585
contendedthatallofEritrea’sproperty-relatedclaimswereearlierconsideredanddismissedbytheCommission,whenitdismissedEritrea’sclaimsforlootinganddestructionofpropertyinLalaiGashSub-Zoba,whereAwgaroislocated .
3. The Commission’s Conclusions
243 . TheCommissiondoesnotagreethatitsPartialAwardshouldbereadinthenarrowmannersuggested .Intheearlierproceedings,theargu-mentspresentedwerenotframedinprecisetermsmatchingpoliticalbounda-riesofAwgaro�illage .Indeed,astheAwardnoted,Ethiopiadidnotpresentrebuttale�idenceregardingthee�entatAwgaro .56Inlightoftheuncontestede�idence, the Commission understood the term “Awgaro” to describe thegeneralareafromwhichEritreanswereforciblyandwrongfullyexpelled,asreflectedintheCommission’sestimateinthePartialAwardthat“600fami-lies”pre�iouslyli�edinAwgaro .57ItisnotappropriatetoconstruetheCom-mission’sPartialAwardnowinanarrowmannernotbasedonargumentsore�idencepre�iouslypresented .
244 . TheCommissionfindsthemostpersuasi�ee�idenceofthenumberofpersonsaffectedbytheillegalexpulsionofEritreansfromAwgarotobethedeclarationofthereliefofficialwhoregisteredtheexpelledpersonsinthedisplacedpersonscamptowhichmostofthemwentafterbeingdri�enoutoftheirhomes .Onthisbasis,theCommissionconcludesthatatleast3,100personswerewrongfullyandforciblyexpelled .
245 . AsforEritrea’sclaimsregardingtheAwgaroexpellees’lostprop-erty,includingrealproperty,theCommissionconcludesthatEritreadidnotraisetheseseparateclaimsattheliabilityphase,andtheclaimsarenowpre-cluded .
246 . TheCommission�iewstheforcibleexpulsionoftheresidentsofAwgaroasaseriousanddeliberatebreachofinternational law,warrantingsignificantcompensation .Thatissowhethertheexpulsiondecisionwasmadebytheindi�idualcommanderoftheEthiopianarmedforcesthatoccupiedthetownorbyhigherEthiopianauthority,anissueonwhichtheCommissionhasnoe�idence .TheCommissionthereforeawardsthefullamountsoughtbyEritreaascompensationforthis�iolation,US$1,550,000 .
56 PartialAwardinEritrea’sWesternFrontandRelatedClaims,para .140 .57 Id.,para .139 .
586 ERITREA/ETHIOPIA
Vii. eriTrea’s GrouP number TWo damaGes Claims
a. The Commission’s liability findings247 . Eritrea’sGroupNumberTwoclaimscompriseEritrea’sClaims15,
16,20,23and24,aswellasfi�eindi�idualclaims(Claims27,28,29,30,31and32) .TheCommission’sspecificliabilityfindingsinthefirstfi�eclaimsarereproducedbelowinconnectionwiththeCommission’sdiscussionsofthosefindings .Theindi�idualclaimsalsoarediscussedinaseparatesectionbelow .TheGroupNumberTwoclaimsin�ol�etwogeneralissuesaffectingse�eralliabilityfindings .
b. non-responsibility for Claims of nationals; dominant and effective nationality
248 . The December 2000 Agreement established this Commission’sjurisdiction,butdidnotcreatesubstanti�erights .TheParties’claimsfor�io-lationsofinternationallawgenerallyremainsubjecttoanyqualificationsandlimitationsapplicableundercustomaryinternationallaw .EthiopiacontendedthatEritrea’sclaimsin�ol�ingse�erallargegroupsofpeopleshouldfailonaccountoftwosuchlimitations .Itfirstcontendedthatclaimsin�ol�ingmanypersonswerebarredbythecustomaryinternationallawrulesprecludingaStatefromclaimingintheexerciseofdiplomaticprotectioniftheinjuredindi-�idualhasthenationalityoftheStateagainstwhichtheclaimismade .Italsocontendedthatclaimsin�ol�ingpersonswhomtheCommissionfoundweredualnationalsatrele�anttimeswerebarredbecausethosepersons’dominantnationalitywasEthiopian .Ethiopiacontendedinthisregardthatmostofthedualnationalsin�ol�edinEritrea’sclaimshadtheirstrongestfamily,socialandeconomictiesinEthiopiaattherele�anttimes .Accordingly,theirdomi-nantnationalitywasEthiopian,andtheirclaimsshouldthereforebebarred .
249 . Ethiopiain�okedtheselinesofargument,inter alia,againstErit-rea’sclaimsforwrongfuldepri�ationofnationality,wrongfulexpulsion,andresidents’lossesofproperty .
250 . Eritrearesponded,inter alia,thatinthecontextoftheDecember2000Agreement(whichincertaincircumstancesauthorizedEritreatopursueclaimsonbehalfofpersonswhoarenotEritreannationals),theruleofdomi-nantandeffecti�enationalitycouldonlyoperatetobaraclaimiftheinjuredperson’snon-Eritreannationalitywascontinuousfromthedateoftheinjurytothedateoftheclaim .Italso�igorouslyarguedthatEthiopiashouldnotbeabletoin�oketheselimitationsondiplomaticprotectionandStateresponsibil-itywhereEthiopiaitselfactedtose�erthebondofEthiopiannationality .
251 . The Commission recognizes the continued force of the rule ofdominant and effecti�e nationality in many circumstances . Howe�er, it
partxvii—FinalAWARD eritrea’sdamagesclaims 587
belie�esthatapplicationoftherulemustbequalifiedinsituations,suchasthosepresentedhere,in�ol�ingclaimscenteredonexpulsionordepri�ationofnationalitybytherespondentState .Itcannotbethat,insuchsituations,internationallawallowsaStatewrongfullytoexpelpersonsordepri�ethemofitsownnationality,butthendenyStateresponsibilitybecauseofthe�erysocialconnectionsorbondsofnationalityitwrongfullyended .ThePartiesreflectedthisinArticle5(9)oftheDecember2000Agreement,wheretheyagreedthat“[i]nappropriatecases,eachpartymayfileclaimsonbehalfofpersonsofEthiopianorEritreanoriginwhoarenotitsnationals .”Thispro�i-sionisacompellingindicationthatthePartiesdidnot�iewthegeneralrulesofdiplomaticprotectionasapplyingintheunusualcircumstancesthatledtothatAgreement .
C. deprivation of nationality
1. Introduction
252 . InitsPartialAwardofDecember17,2004inEritrea’sCi�iliansClaims,theCommissionfoundEthiopialiableforunlawfullydepri�ingfourgroupsofpersonsoftheirEthiopiannationality:
1 . Forerroneouslydepri�ingatleastsomeEthiopianswhowerenotdualnationalsoftheirEthiopiannationality;2 . Forarbitrarilydepri�ingdualnationalswhoremainedinEthiopiadur-ingthewaroftheirEthiopiannationality;3 . Forarbitrarilydepri�ingdualnationalswhowerepresentinthirdcoun-triesduringthewaroftheirEthiopiannationality;4 . Forarbitrarilydepri�ingdualnationalswhowereexpelledtoEritreabutwhowerenotscreenedpursuanttoEthiopia’ssecurityre�iewprocedureoftheirEthiopiannationality .58
253 . EritreaclaimedalmostUS$2 .4billionascompensationforthese�iolations .ItdidnotdirectlycorrelateitsclaimtotheCommission’sliabilityfindings,insteadseekingUS$10,000percapitainrespectofeachpersoninfourgroupsofdualnationals:
– 43,319whoallegedlywereunlawfullydepri�edofEthiopiannationalityinconnectionwiththeirexpulsiontoEthiopia(US$433,190,000);– 428whoallegedlyweredepri�edofEthiopiannationalityinconnectionwiththeirexpulsiontothirdcountries(US$4,280,000);– 36,207whoallegedlywereunlawfullydepri�edofEthiopiannationalitywhiletheyremainedinEthiopia(US$360,270,000);and
58 PartialAward,Ci�iliansClaims,Eritrea’sClaims15,16,23&27–32BetweentheStateofEritreaandTheFederalDemocraticRepublicofEthiopia(Dec .17,2004)[herein-afterPartialAwardinEritrea’sCi�iliansClaims],dispositif,SectionXIII .E .
588 ERITREA/ETHIOPIA
– 156,567whoallegedlywereunlawfullydepri�edofEthiopiannational-itywhiletheywerepresentinthirdcountries(US$1,565,670,000) .
254 . Eritreacannotclaimcompensation for itsownaccount for thefirstoftheliabilityfindingslistedabo�e(for“erroneouslydepri�ingatleastsomeEthiopianswhowerenotdualnationalsoftheirEthiopiannationality”) .Attheliabilityphase,theCommissionfoundthatEritrea’sclaimspredicateduponinjuriesinflicteduponpersonsholdingonlyEthiopiannationalitydidnotconformtothejurisdictionalrequirementsoftheDecember2000Agree-ment,andcouldnotbethebasisforcompensationaccruingdirectlytotheStateofEritrea .59
2. Persons Remaining in Ethiopia—“Yellow Card People”
255 . TheCommissionfoundEthiopialiable“[f]orarbitrarilydepri�ingdualnationalswhoremainedinEthiopiaduringthewaroftheirEthiopiannationality .”Thisfindingin�ol�edalargegroupofpersonsresidinginEthio-piawhoremainedthereforthedurationofthewar,butwhomtheGo�ernmentofEthiopiacametoregardassolelyEritreannationals .
256 . Thesepersonswerenotexpelled,buttheywererequiredtoregisterwithEthiopia’ssecurityauthoritiesandtosurrendertheirpassports,identitycardsandotherofficialdocumentsidentifyingthemasEthiopians .Theyweregi�endistincti�eyellowidentitycards,andwerereferredtobybothPartiesthroughout the proceedings (and are referred to here) as the “yellow cardpeople .”Ethiopiadidnotcontendthatthesepersonswerethesubjectofanysortofindi�idualizedre�iewprocess,orwerejudgedtothreatenEthiopia’ssecurity .Thee�idenceattheliabilityphaseindicatedthat24,018yellowcardswereissued .Atthedamagesphase,Eritreacontended(withoutsupportinge�idence)thatthenumberofpersonsinthisgroupshouldbeincreasedby50%,to36,000,reflectingpersonswhowereobligedtoregister,butdidnot .EthiopiadidnotdisputeEritrea’sunsupportedclaimtothisincreaseofthenumberto36,000becausethelargerfiguresupportedEthiopia’sdefenses(dis-cussedbelow)regardingthenumberofpersonswhowerewronglyexpelledfromEthiopia .
257 . EritreaclaimedUS$10,000withrespecttoeachoftheyellowcardpeople,ormorethanUS$360million .ItallegedthatsubstantialcompensationwaswarrantedbecausethesepeopleexperiencedsubstantialinjuryonaccountoftheirlossofEthiopiannationality .ItreferredtotheCommission’sfindinginthePartialAwardthatlosingEthiopiannationalitycouldha�ead�ersecon-sequencesintermsoftherighttoholdlandandbusinesslicensesandobtainpassports .Eritreaalsocitedawitnessstatementfromayellowcardholder,allegingthatheandhisfamilywerebarredfromlea�ingthetownofMekelewheretheyli�ed,andfacedotherdifficultiesanddiscriminations .
59 Id.,paras .19,20&90 .
partxvii—FinalAWARD eritrea’sdamagesclaims 589
258 . Ethiopiarespondedthattheyellowcardpeoplehaddominantandeffecti�eEthiopiannationality,sothatEritreacouldnotmakeaclaimwithrespecttothem .(TheCommissionaddressedandrejectedthislineofargu-mentabo�e .)EthiopiaalsoarguedthatitwouldbeanomalousandimpropertoawardcompensationtoEritreainrespectofpeoplewhowerenote�eninEritreaandthat,inanye�ent,Eritreafailedtopro�ethattheyellowcardpeo-pleactuallysufferedinjury .EthiopiaarguedthatEritreapresentedonlytwodeclarationssupposedtoshowinjury .Ethiopiadismissedtheonereferredtoabo�eas“dubious;”theotherdeclarant,a“Mr .Doe,”wassaidnottobeayel-lowcardperson .EthiopiaalsomaintainedthattheyellowcardpeoplehadsignificantrightsandprotectionsunderEthiopianlaw .Inthisregard,itintro-ducede�idencethatEthiopia’spost-warlegislationallowedthemtoreestablishtheirEthiopiannationality,andthatabout2,900personsinAddisAbabahaddoneso .
259 . As theCommissionconcluded in itsPartialAward inEritrea’sCi�iliansClaims,abelligerentinwartimemay“lawfullyassignsignificantandsometimespainfulconsequencestoeitherofadualnational’snationali-ties .”SomeoftheinjuriescomplainedofinEritrea’ssparsee�idenceaddress-inginjury,suchasthelossofpublicemploymentbydualnationalsholdingthenationalityofanenemyStateinwartime,werenotunlawfulinthecir-cumstances .
260 . Eritreadidnotproducee�idencesufficienttoestablishthattheyellowcardpeopleexperiencedanyeconomicorsocialburdensordisloca-tionsjustifyinganawardofcompensation,certainlynottheUS$360millionEritreaclaimed .Accordingly,Eritrea’sclaimforcompensationwithrespecttotheyellowcardpeopleisdismissed .
3. Deprivation of Nationality of Persons Outside of Ethiopia
261 . The Commission found Ethiopia liable “for arbitrarily depri�-ing dual nationals who were present in third countries during the war oftheirEthiopiannationality .”Pursuanttothisfinding,Eritreasought,inoneparagraphofitsDamagesGroupTwoMemorial,o�erUS$1 .56billion .ThisreflectedUS$10,000perpersonwithrespecttoeachof156,567persons .Eritreacalculatedthisnumberbytaking66 .1%(theproportionofdualnationalsindi-catedinEritrea’sclaimsforms)ofthe236,864personswhomtheInternationalOrganizationforMigrationtalliedasha�ing�otedinthirdcountries .Abouttwothirdsofthesepeople(155,314)�otedinSudanandtheremainderinSaudiArabia(37,777)orothercountries .
262 . Eritreamaintainedthatallofthesepeoplewerewronglydepri�edoftheirEthiopiannationality,andfellundertheCommission’sliabilityfind-ingdealingwithlossofnationalitybypersonsoutsideofEthiopia .Howe�er,itdidnotexplainits�iewthattheyalllostEthiopiannationalityorsubmitanye�idenceinthisregard .TheCommissioninfersthatEritreahadinmind
590 ERITREA/ETHIOPIA
Ethiopia’sargumentattheliabilityphase,totheeffectthatallpersonswhoqualified to participate in the referendum lost their Ethiopian nationalityasaresult .Howe�er, initsPartialAwardinEritrea’sCi�iliansClaims,theCommissionrejectedthisargument .Instead,takingaccountoftheuniquecircumstancesofEritrea’sbecomingindependent,andofthemannerinwhichEthiopiacontinuedtotreatreferendumparticipantsasitsnationals,theCom-missionfoundthatEthiopianswhoparticipatedinthereferendumprocessbecamedualnationalsofbothcountries .60
263 . Ethiopiarespondedtothisclaimbyarguing,inter alia,thatEritreaunjustifiablyexpandedthescopeoftheCommission’sliabilityfindingtoco�erahugeclassofpeoplethatwasnotdiscussedattheliabilityphase,andthatwasnotcontemplatedbythePartiesortheCommissionatthattime .Ethiopiacon-tendedthatEritreahadoriginallypleadeditsclaimtoco�erarelati�elylimitednumberofpersons—strandedinternationalbusinessmenandthelike—whofoundthemsel�esoutsideofEthiopiawhenthewarbegan .InEthiopia’s�iew,theCommissionadoptedEritrea’snarrowdescriptionoftheclassofco�eredpersonsinitsPartialAward .
264 . Asnoted,Eritreapresentednoe�idenceshowing thatEthiopiaregarded156,000personswho�otedinthereferendumoutsideofEthiopiaasha�inglostEthiopiannationalityastheresult .Norwasthereanye�idenceshowingthattheysufferedanyactualeconomicorotherinjuryonaccountoftheirsupposedlossofnationality .
265 . Accordingly,theportionofEritrea’sclaimin�ol�ingthesupposedlossofnationalityby156,000personswho�otedinthereferenduminloca-tionsoutsideofEthiopiafailsforlackofproof .
266 . InframingitsliabilityAward,theCommissionwasguidedbytheclaimasEritreapresentedit .Eritreaindicatedatthattimethatitcouldnotquantifythenumberofpersonsco�eredbythisclaim .Howe�er itcitedasillustrationsbusinessmenandotherresidentsofEthiopiawhoweretempo-rarilypresentinthirdcountrieswhenwarbegan,andwhomEthiopiathenrefusedtorecognizeasitsnationals .Therewase�idenceshowingthatafewsuchindi�idualsdidsufferdifficultiesandincon�enienceonaccountofEthi-opia’sactions .Eritreasubmitteddeclarationsbypersonswhowererefusedassistancewhentheysoughtad�iceorpassportsorotherconsularser�icesatEthiopianembassiesinthirdcountries,includingsomewhoseEthiopianpassportsweretakenandnotreturned .Howe�er,therecorddidnotpro�ideabasisforestimatinghowextensi�esuchoccurrencesmayha�ebeen .
267 . Gi�enthese�erelimitationsoftherecord,theCommissionawardscompensationintheamountofUS$50,000inrespectoftheunknown,butapparentlysmall,numberofdualnationalswhowerearbitrarilydepri�edoftheirEthiopiannationalitywhilepresentinthirdcountries .
60 Id.,para .51 .
partxvii—FinalAWARD eritrea’sdamagesclaims 591
4. Other Deprivations of Nationality
a. The Parties’ Claims
268 . Finally, the Commission found Ethiopia liable for arbitrar-ilydepri�ingdualnationalswhowereexpelledtoEritreabutwhowerenotscreenedpursuanttoEthiopia’ssecurityre�iewprocedureoftheirEthiopiannationality .
269 . Atthedamagesphase,Eritreaad�ancedabroadly-framedclaimwithrespectto43,319dualnationalswhoallegedlylosttheirEthiopiannation-alityinconnectionwithwhatEritreasawastheirallegedlywrongfulexpulsionfromEthiopia .Eritreacalculatedthisnumber(andthenumberco�eredbyitscloselylinkedclaimforwrongfulexpulsions,discussedbelow)startingwithinformationfromadatabasede�elopedbyERREC .
270 . The Parties’ arguments and e�idence regarding this portion ofEritrea’sclaimfrequentlyconflatedEritrea’sclaimsin�ol�ingdepri�ationofnationalityanditsclaimsallegingwrongfulexpulsion .Thisisnotsurprising .Manypeopleexperiencedbothlossofnationalityandexpulsion(eitherlawfulorunlawful),andthesamefactsarerele�anttobothtypesofclaims .BothPar-tiesde�otedmucheffortandargumentatthehearingtodebatingalternati�ewaysofcalculatingthenumberofpersonsfallingintothesetwogroups .(InEritrea’s�iew,thegroupswereidentical,so43,319personsexperiencedbothwrongfulexpulsionandwrongfuldepri�ationofEthiopiannationality .)Thefollowingdiscussionregardingthenumbersofpersonsaffectedthusisrel-e�antbothtothepresentclaimfordepri�ationofnationality,andtotheclaimaddressedinthenextsectionforwrongfulexpulsion .
271 . TheERRECdatabase includedinformationon65,535EritreanswhoregisteredaftercrossingintoEritreafromEthiopiabetweenMay1998andDecember2000 .ERRECenteredregisteredindi�iduals’personalinforma-tionintothedatabase,includingbirthdates,namesofaccompanyingfamilymembers,educationalstatus,meansoftransporttotheborder,andeconomicloss .ThedatabaseoriginallyincludedpersonswholeftEthiopiabothbeforeandaftertheCommission’sjurisdictionalperiod .Howe�er,Eritreacontendedthatthedatawasadjustedtoremo�ethelattercategorybeforeitcalculateditsdamagesclaim .
272 . EritreacontendedthatthetotalsindicatedbytheERRECdata-baseprobablywerelow,becausetheydidnotincluderuralexpelleesinremoteregionswhodidnotregister .Howe�er,Eritreapointedoutthatitsclaimedtotalof65,535personsenteringEritreafromEthiopiawasbroadlycomparablewithestimatesbyoutsidehumanrightsgroupsandobser�ers,citinginthisregardse�eralobser�ers’estimatesrangingfrom50,000to75,000persons .
273 . Eritreacalculateditsclaimednumberof43,319wrongfuldepri�a-tionsofnationalitybeginningwiththe65,535personsintheERRECdatabase .Thisnumberthenwasreducedby14 .4%,theproportionofpersonswhoiden-
592 ERITREA/ETHIOPIA
tifiedthemsel�esonEritrea’sclaimsformsasha�ingleftEthiopia�oluntar-ily .(ThiswasnecessarybecausetheCommissionpre�iouslyheldthatitwaslawfulforEthiopiatodepri�edualnationalswho�oluntarilywenttoEritrea,anenemyStateinwartime,oftheirEthiopiannationality .61)Thisresultedin56,098persons .
274 . Eritrea’sDamagesGroupTwoMemorialindicatedthatthatthisnumber should thenha�ebeen further reduced, toeliminatepersonsEri-treaestimated(againbasedonitsclaimsforms)toha�ehadonlyEritreannationality .ThesepersonshadtobeeliminatedbecausetheyhadnoEthiopiannationalitytobetakenaway .Eritreaestimatedthat66 .1%ofthepersonsinthedatabaseweredualnationals,sothatthetotalshouldha�ebeenreducedbyabouttwo-thirds .66 .1%of56,098is37,081,whichwouldseemtobethecorrectnumberofpersonswronglydepri�edoftheirEthiopiannationality,gi�enEritrea’spremises .Howe�er,37,081is14 .4%lessthanthe43,319Eritreaactuallyclaimed .ThissuggeststhatEritreamayha�eapplieditspercentagereductionfordualnationals(66 .1%)to the totalpopulation in theERRECdatabase,butdidnotfurtherreducethisnumbertoreflectpersonswholeftEthiopia�oluntarily .
275 . Eritreaalsoclaimedcompensationwithrespecttoanotheresti-mated331personswhowereunlawfullyexpelledbyEthiopiatoKenyaandDjibouti,withassociatedlossofnationality .EritreacitedanAmnestyInter-nationalreportthattherewere“hundreds”ofsuchpersons,andestimatedtheactualnumbertobeabout500 .Eritrea’sMemorialindicatedthatthisesti-matewasalsoreducedtoeliminatepersonswholeft�oluntarilyandwhohadonlyEritreannationality .Howe�er,Eritreaagainappearstoha�ereducedtheamounttoeliminateonlythosewhohadsolelyEritreannationality,andtoha�eleftintheproportionthatsaidtheydeparted�oluntarily .
276 . EthiopiacontendedthatthenumbersaffectedbyanywrongfullossofnationalityweremuchsmallerthanEritreaclaimed,andthatEritreafailedtopro�eactualdamagefollowingfromanysuchlossesofnationalitythatdidoccur .
b. The Commission’s Conclusions
277 . TheCommissionconcludedattheliabilityphasethatlocalauthori-tiesinEthiopiawronglyexpelledaconsiderablenumberofdualnationalswhowerenotidentifiedthroughindi�idualizedsecurityre�iewsundertheauthor-ityofEthiopia’sstatesecurityagency,theSecurity,ImmigrationandRefugeesAffairsAuthority(“SIRAA”);thoseexpelledapparentlythenlosttheirEthio-piannationalityonaccountoftheirpresenceinEritrea .Howe�er,therecordisnotclearastohowmanypersonsfellintothisgroup .Inassessingtheextentofthis�iolation,ithasbeennecessaryfortheCommissiontoexcludese�eral
61 Id.,para .73 .
partxvii—FinalAWARD eritrea’sdamagesclaims 593
groupsofpersonsastowhomEritreacouldnotclaimcompensationforlossofnationality .
278 . SIRAA Expellees. Attheliabilityphase,theCommissionheldthatasubstantialnumberofdualnationalswerelawfullyexpelledanddepri�edofEthiopiannationalityfollowingtheSIRAAscreeningprocess .62(Thesepersonsarereferredtohereinafteras“SIRAAexpellees .”)TheSIRAAprocesssoughttoidentifypersonsposingpotentialthreatstoEthiopia’swartimesecurity .Ethio-piaseizedtheSIRAAexpellees’passportsandotherdocumentsindicatingEthiopiannationalitywhentheywereexpelled,andthereafterregardedthemasha�inglostEthiopiannationality .Themajorityofthesee�entsoccurredduringtheearlymonthsofthewar .
279 . InitsPartialAward,theCommissionnotedthatabelligerenthasthelegalrighttoexpelenemynationalstotheirhomecountriesinwartime,includingpersonswhomayholddualnationality .ItfoundthattheSIRAAexpellees—saidbyEthiopiatonumber15,475—werelawfullyexpelledanddepri�edoftheirEthiopiannationalityafterbeingidentifiedthroughthesecu-rityre�iewprocess .63Asthesedualnationalswerenotunlawfullydepri�edoftheirEthiopiannationality,nocompensationisduewithrespecttothem .
280 . Eritreaacknowledgedthatitsclaimednumberofwrongfuldepri-�ationsofnationalitymightbereducedtoreflectSIRAAexpellees .Howe�er,EritreacontendedthatEthiopiapresentede�idencedocumentingtheresultsofSIRAAre�iewsinjustahandfulofcases .Absentadditionale�idencedoc-umentingtheoutcomeofsuchre�iews ineachof the15,475cases,Eritreaassertedthatthoseexpulsions(andtheirassociateddepri�ationsofnational-ity)mustberegardedasunlawful .
281 . Whilethee�idencesupportingthefigureof15,475SIRAAexpel-leeswaslimited,itwasbroadlyconsistentwithstatementsbyEthiopiansecu-rityofficialsregardingthenumberofexpulsionsintherecord,andindeedwaslowerthanindicatedbysomeofthosestatements .Thefigureof15,475SIRAAexpelleeswasconsistentlycitedbyEthiopiathroughouttheseproceedings,e�enthoughlargerfiguressuggestedbysomeofficials’statementswouldha�ebeenmoretoitsad�antage .Thefigureappearsplausibleinthecircumstances;itreflectsabout3%ofthe500,000personsofEritreanextractioninEthiopia,afigurecitedbybothParties .Takingtherecordasawhole,whiletheCommis-sionisnotpersuadedthatthefigureof15,475ispreciselycorrect,itappearsareasonableindicationofthescaleofthelawfulexpulsionsandlossesofnation-alitythatfollowedSIRAAsecurityre�iews .
282 . TheCommissionwasnotpersuadedbyEritrea’sargumentthatEthiopiawasobligedtoproducee�idenceregardingthespecificsof15,475indi�idualsecurityre�iews .Atleastsomeofthesedocumentscouldin�ol�eproblematic issues of state security . Eritrea’s argument also raises a more
62 Id.,para .72 .63 Id.,paras .72&82 .
594 ERITREA/ETHIOPIA
importantpointaswell .Throughout theseproceedings,bothPartiesha�eregularlycitedthelimitationsimposedbythelackofresourcesandtimeindesigningandpresentingtheirclaims,andtheCommissionhasbeensensi-ti�etotheseconcerns .Ithasnotrequirede�idenceregardingthousandsofindi�iduale�ents,e�idencethatthePartiescouldnotassembleandpresent,andtheCommissioncouldnotaddress,withoutunacceptablecostanddelay .TheCommissiondoesnotseeareasontoadopta fundamentallydifferentapproachwithrespecttotheSIRAAsecurityre�iews .
283 . Voluntary Departures. The Commission next considered thenumberofpersonswholeftEthiopia�oluntarily .Asnotedabo�e,thePartialAwardinEritrea’sCi�iliansClaimsheldthatterminationoftheEthiopiannationalityofdualnationalswhowent�oluntarilytoEritreawasnotarbitraryandunlawful .64TheCommissiondidnotdeterminehowmanypersonsfellintothiscategory,andtherecordisparticularlyunclearinthisregard .
284 . Initscalculationsdescribedabo�e,Eritreaestimated,basedonitsclaimsforms,that14 .4%ofthepersonsintheERRECdatabase,or9,437per-sons,leftEthiopiaforEritrea�oluntarily .Ofthese,abouttwo-thirdsweresaidtobedualnationalswhostoodtolosetheirEthiopiannationalitybecauseoftheirdecision .Foritspart,Ethiopiacontendedthat21,905familymembers�oluntarilyaccompaniedtheSIRAAexpellees;thatbydoingsothey�oluntar-ilychosetose�ertheirconnectionsofnationality;andthatEthiopiawasjusti-fiedinregardingthemasnolongeritsnationals .Ethiopiaalsomaintainedthatmanyotherdualnationalsfreelychosetolea�eEthiopiaforEritrea .Eritreadisagreed,contendingthatmanyfamilymemberswereforciblyexpelledalongwithSIRAAexpellees,andthatotherfamilymemberswholeftforeconomicreasonsafterexpellees’propertywasseizedorsealedshouldalsoberegardedasha�ingbeencompelledtolea�e,sothattheensuinglossofEthiopiannation-alitywasunlawful .
285 . Thesparseandconflictinge�idenceintherecorddoesnotpermitasureassessmentofthenumberofdualnationalswholeftEthiopiaforEritrea�oluntarilyduringthewar .ThenumberiscertainlylargerthanthaturgedbyEritrea,andsmallerthanthaturgedbyEthiopia .Inanycase,manythousandsofdualnationalsdidlea�eEthiopiaforEritrea�oluntarily .Theirresultinglossofnationalitywasnotarbitraryandunlawful,andnocompensationiswar-rantedwithrespecttoit .
286 . PersonsofSoleEthiopianNationality.Finally, theCommissionconsideredtheextent towhichpersonswhoweresolelyEthiopiannation-alsweredepri�edof thatnationality .These included, inter alia,manyper-sonsexpelledfromruralareasneartheborderandsomespousesandfamilymembersofotherexpelleeswhowerethemsel�eslaterexpelled .Astheywerenotdualnationals,allthesepersonsbecamestatelessastheresult .Howe�er,asnotedabo�e,becauseofthemannerinwhichEritreapresenteditsclaims
64 Id.,para .73 .
partxvii—FinalAWARD eritrea’sdamagesclaims 595
in�ol�ingpersonswithsoleEthiopiannationality,itcannotclaimcompensa-tionbaseduponinjuriestothem .65
287 . ProofofInjury.Consideringthetotalityofthee�idence,theCom-missionconcludesthatsomethingontheorderof15,000dualnationalswerearbitrarilydepri�edoftheirEthiopiannationalityinconjunctionwiththeirunlawfulexpulsion fromEthiopia .Howe�er, therewas little in the recordregardingthepracticalconsequencesofthisforthoseaffected .Forcedexpul-sionfromEthiopiawasformanyawrenchingandlife-changinge�ent .TheassociatedlossofEthiopiannationalityseemstoha�ebeenamatteroflesspracticalconsequence .Eritreaappearstoha�erecei�edmostexpelleesasitsnationals,pro�idingsupportandidentitydocuments,sofewbecamestateless .E�enthosepersonsofsoleEthiopiannationality,suchastheruralexpellees,seemtoha�ebeenassistedandgi�enEritreanidentitydocuments .Inthecir-cumstances,thesumofUS$10,000percapitaforlossofEthiopiannationalityrequestedbyEritreaclearlyisexcessi�eandunwarranted .
288 . Takingintoaccountthelimitationsoftherecord,andinparticularthepaucityofe�idenceregardingthepracticalconsequencesfollowingfromlossofEthiopiannationality,theCommissiondecidesthatsatisfactionintheformoftheCommission’searlierliabilityfindingsconstitutessufficientrepa-rationforEritrea’sclaimsforcompensationforunlawfuldepri�ationofsomedualnationals’Ethiopiannationality .
d. Wrongful expulsion
1. The Commission’s Liability Findings
289 . InitsPartialAwardinEritrea’sCi�iliansClaims,theCommissionfoundEthiopialiableforthewrongfulexpulsionofthreegroupsofpeople .Itwasfoundliable: 5 . Forpermittinglocalfarmers,militiaorpoliceforciblytoexpelrural
people,manyormostofwhomweresolelyEthiopiannationals,fromruralareasneartheborder;
6 . ForpermittingtheforcibleexpulsiontoEritreaofsomemembersofexpellees’familieswhodidnotholdEritreannationality;
7 . For permitting local authorities forcibly to expel to Eritrea anunknown,butconsiderable,numberofdualnationalsforreasonsthatcannotbeestablished .66
290 . Withrespect to thefirstandsecondof thesegroups, theCom-missionfoundattheliabilityphasethatEritreacannotclaimcompensationfortheirwrongfulexpulsion,butonlyfordirectcostsincurredbyEritreaasa
65 Id.,paras .19&90 .66 Id.,dispositif,SectionXIII .E .
596 ERITREA/ETHIOPIA
resultofthoseexpulsions .TheCommissionaddresseseachofthethreegroupsbelow,startingwiththedualnationals .
2. Dual Nationals Wrongfully Expelled
a. Number of Expellees
291 . Eritreaappearedtoclaimcompensationinrespectof43,319peopleallegedlywronglyexpelledfromEthiopiatoEritrea,andthesamesumwithrespectto331additionalpersonsexpelledtoDjiboutiandKenya .67Thesenum-berswerecalculatedinthesamemannerasitsclaimsforwrongfuldepri�ationofnationality,asexplainedabo�e .
292 . Ethiopia contended that Eritrea’s method of calculating thenumberofpersonswronglyexpelledwasflawed,becauseitdidnotreflecttheCommission’sactualliabilityfindings .ItrecalledinthisregardtheCommis-sion’sholdingattheliabilityphasethatEritreacouldnotclaimcompensationinitsownrightonaccountofinjuriessustainedbypersonswhoweresolelyEthiopiannationals .68InEthiopia’s�iew,therecouldnotha�ebeenmorethan7,250wronglyexpelleddualnationals,andtheactualnumberprobablywasmuchlower .(Ethiopia’sdescriptionofthemaximumnumberofdualnationalswhomightha�ebeenwrongfullyexpelledwas�ariouslydescribedas7,250and7,260,reflectingslight�ariationsinthemethodofcalculation .)
293 . Incalculatingthenumberofpersonswhomightha�ebeenwrong-fullyexpelled,EthiopiatookasitsstartingpointthenumberofpersonstheInternationalOrganizationforMigrationidentifiedasha�ingparticipatedinthe1993referenduminEthiopia,andwhocouldha�eacquireddualnation-alityasaconsequence(66,022) .Fromthisnumber,EthiopiasubtractedthenumberoflawfulSIRAAexpellees(15,475)andthenumberofyellowcardpeople(36,027—thenumberofyellowcardsissued,asincreasedby50%byEritrea) .Thisleftabout14,500people .Ethiopiaestimatedthatabouthalfofthesepeopleleft�oluntarily,whiletheotherhalfmightha�ebeensubjecttounlawfulexpulsion .
294 . Eritrea did not accept this method of calculation . Howe�er, itcontendedthat,shouldtheCommissionadoptEthiopia’sapproach,thebasenumberofdualnationalsinEthiopiapotentiallysubjecttoexpulsionwouldha�etobesignificantlyincreased .Thelargestsuchincreasein�ol�edchildrenof
67 Eritrea’sGroupNumberTwoDamagesMemorialwasnotconsistentregardingthenumbersofpersonsco�eredbythisclaim .Thenumbersofpersonscitedabo�earefromtheMemorialoftheStateofEritrea,Damages(GroupTwo)filedonDecember15,2007,para .1 .100[hereinafterERDamagesGroupTwoMemorial] .Howe�er,inaseparatetableattheendoftheMemorial,EritreaappearedtoclaimUS$10,000percapitainrespectof56,098personsreflectedintheERRECdatabase,plusanadditional428personsexpelledtothirdStates .
68 See para .286 .
partxvii—FinalAWARD eritrea’sdamagesclaims 597
dualnationalsborninEthiopia .Eritreacontendedthatthesechildren,claimedtonumberabout70,000,wouldthemsel�esha�eacquiredEritreannationalitybyoperationofEritreanlaw,andalsowouldha�ebeendualnationals .Eritreamaintainedthatthebasenumberalsoshouldbeincreasedtoinclude1,554personsinEthiopiawhorecei�edEritreanidentitycardsafterthereferendum,and5,278personswhorecei�edEritreanidentitycardsbutdidnot�oteinthereferendum .Ethiopia�igorouslydisputedinclusionofallofthesegroups .
295 . TheCommissiondoesnotaccepteitherParty’sproposedmethodforcalculatingthenumberofdualnationalswhowerewronglyexpelled .Basedonitsbestassessmentofthee�idence,theCommissionconcludesthatapprox-imately15,000dualnationalswerewronglyexpelled .
b. The Parties’ Claims
296 . Astotheamountofcompensationforthewrongfulexpulsionofdualnationals,EritreaappearedtoclaimUS$10,000perwrongfulexpellee,withoutpro�idingsupportinge�idence .Ethiopiacontendedthatthisamountwasexcessi�eandunjustified .
297 . Eritreaalsoclaimedsignificantamountsinrespectofitsexpensesinrecei�ingandcaringforallthreeofthegroupsofpersonsdescribedabo�e .Eritreapresentedthisclaiminbroad-brushterms,describinggenerallytheplightofallexpelleesarri�inginEritreaandtheformsofassistancetheyweregi�enforuptoeightyears .Eritreareportedthatitpro�idedone-timecashsubsidies,temporaryfoodandhousing,emergencyhealthcare,educationandtransportation .
298 . EritreadidnotrelateitsclaimstotheCommission’sspecificliabil-ityfindings,butinsteaddi�idedtheexpelleesintotwobroadcategories:28,000ruralexpellees,acategory(withoutatotalnumber)forwhichtheCommissionfoundliabilityinSectionXIII .E .5ofitsCi�iliansClaimsPartialAward,andsome43,187“urbanexpellees,”acategorynotusedinthePartialAward .Eri-treadidnotquantifytheactualamountsclaimedexceptinatableattheendofitsDamagesGroupTwoMemorial,whichdidnotconsistentlydistinguishbetweenexpensesclaimedfor“urbanexpellees”andruralexpellees .
299 . Ethiopiadeniedliability,disputingEritrea’sclaimsforcompensa-tionrelatingtotheexpulsionofdualnationals .Itdisputedthesufficiencyofthee�idence,andcontendedthatEritreaclaimedgrosslyexaggeratedamountso�eranundulylongperiodforallofthegroupsitcaredfor,andclaimedforexpensesthatEritreadidnotactuallyincur .
c. The Commission’s Conclusions
300 . TheCommissionnotes theexceptionalbasisof the liability forwrongfullyexpelleddualnationalsinSectionXIII .E .7ofitsPartialAwardin
598 ERITREA/ETHIOPIA
Eritrea’sCi�iliansClaims .AlthoughtheStateofEthiopiacouldha�elawfullyexpelledenemyEritreannationals,includingdualEritrean-Ethiopiannation-als,duringthewar,thisisnotwhathappenedtothislargegroupofpersons .Instead,theCommissionfoundthatEthiopiaallowedlocalauthoritiestoexpelanunknown,butconsiderable,numberofdualnationalsin�iolationofinter-nationallaw,therebyengagingStateresponsibility .
301 . AlthoughEritreasoughttoassistthesedualnationalexpellees,andsomewereassistedbyfamilyorfriendsinEritrea,itisclearthattheexperiencewastraumaticandlifechangingformanyexpellees .
302 . Inlightoftheseunusualcircumstances—ahighlydisputedrecordregardingtheextentofwrongfulexpulsion,imperfecte�idence,theunusu-alcharacterofthedelict,andtheseriouscharacterofthee�entformanyofthoseaffected—theCommissionawardscompensationinthetotalamountofUS$15,000,000inrespectofthewrongfulexpulsionofanunknown,butconsiderable,numberofdualnationalsbylocalEthiopianauthorities .
3. Rural Expellees
303 . EritreaclaimedapproximatelyERN1 .4billionandtwenty-eightmillionbirrforitsallegedexpendituresinresettlingalargegroupofruralEthiopiansfoundbytheCommissiontoha�ebeenwrongfullyexpelledfromEthiopia .TherecordindicatedthatEritreatooksubstantialmeasurestoassistthesepeople,includingcreatingthenewtownofGerenfittohousethem,andpro�idedsubstantialamountsoflandtoallowthemtoresumetheiragricul-turalwayoflife .Howe�er,whilerecognizingEritrea’slaudableresponsetotheplightoftheruralexpellees,theCommissionisnotpreparedtoawardcompensationatsuchhighle�els,forse�eralreasons .
304 . Firstandmostimportantly,Eritreapresented�erylimitedsup-porting e�idence regarding the amount of this huge compensation claim .The�aluesthatEritreasetoutinthetableattheendofitsDamagesGroupTwoMemorialweredrawnfromthestatementofoneformerERRECofficial .AlthoughtheCommissionhasnoreasontodoubtthe�eracityofthiswitness,hisstatementcontainedonlybottom-lineamountsforgo�ernment-incurredexpensesforsocialser�icesandinfrastructureimpro�ements .Thewitnessdidnotattach,andtherecordwasotherwisede�oidof,typicaldocumentationforsuchsignificantexpenses,forexample,ERRECbudgets,procurementcon-tracts,receiptsorconstructionplans .
305 . Second,theCommissionconsidersthatEritreadidnotsupportits claim for expenses incurred to recei�e and resettle 28,000 rural expel-lees .Therewasnoe�idencesupportingthisfigure,whichfellwelloutsidethe10,000–15,000rangeoriginallysuggestedbyEritreaattheliabilityphase .NordidEthiopiapro�idesupportforitsapparentcompromisenumberof12,500ruralexpellees .
partxvii—FinalAWARD eritrea’sdamagesclaims 599
306 . TheCommissionislefttomakethemostreasonableestimateitcanusingthemeagere�idencebeforeit .Gi�enthese�erityofthe�iolationofinternationallaw,theCommissionacceptstheupperlimitofEritrea’soriginalestimateof15,000ruralexpellees .Thisfigureissupportedbywitnessstate-mentsthatputthenumberofexpelleesattheresettlement�illageofGerenfitat11,000to13,900persons,acknowledgingthatsomeexpelleessettledinloca-tionsotherthanGerenfit .
307 . Turningnexttothespecificcategoriesofexpensesclaimed,theCommissionispreparedtoacceptthosereasonablysupportedbytherecord .Forexample,basedonwitnessstatementsfromanumberofruralexpellees,theCommissionacceptsthatEritreapaidapproximately230nakfaasaone-timecashsubsidytoruralexpellees .Wherethee�idenceofferedminimaldoc-umentationtosupportacategoryorle�elofexpense,forexample,theclaimforo�er435millionnakfafortemporaryhousingthatwasdescribedbyawitnessas“makeshift,”theCommissionhasreducedthepercapitarateproportion-ately .Whereacategoryappearedtobespeculati�eorbasedonprojectedfutureexpenses,forexamplefortheopportunitycostofagriculturallandgi�entoexpelleesandcostsanticipatedinimpro�ingaccessroads,theCommissionawardsnocompensation .Inthisregard,theCommissionconsidersthateightyearsof“temporary”pro�isionofsocialser�ices,e�entoagrarianexpellees,isexcessi�elylong,andfindstwotothreeyearstobeamorereasonabletransi-tionperiod .
308 . Onthebasisoftheconsiderationsabo�e,theCommissionawardsEritreacompensationofUS$11,000,000forexpensesitincurredinrecei�ing,caringforandresettlingruralEthiopiannationalswrongfullyexpelledfromEthiopia .
4. Family Members of Expellees
309 . At no stage of the proceedings was the Commission pro�idedwithanyestimatewhatsoe�erofhowmanynon-Eritrean familymembersofSIRAAexpelleeswerealso forciblyexpelled fromEthiopia .Neither theERRECdatabasenorthesummaryoftheclaimsformssupportedafigure .Norwereestimatesintherecordofthenumberoffamilymemberswhomayha�e�oluntarilydeparted,acategorywhichincludeddualnationalsaswellassolelyEthiopiannationals,ofanyassistance .Withoutanybasisfore�enaroughestimate,theCommissiondismissesEritrea’sclaimfordirectcostsincurredinrecei�ingthiscategoryofwrongfulexpellees .
e. Harsh Conditions of departure310 . TheCommissionfoundEthiopialiablefor“frequentlyfailingto
pro�idehumaneandsafetreatmenttopersonsbeingexpelledtoEritreafromEthiopia .”Ethiopianauthoritiesrequiredthousandsofpersonstoridestifling
600 ERITREA/ETHIOPIA
andcrowdedbuses,underarmedguard,onjourneysoftenlastingse�eraldays,throughextremelyhotregions,oftenwithfewstopsandlittlefoodandwater .Somehadtotra�erseminedareasbetweenthetwoarmies .Thesepersonsthenhadtocrosstheborderzoneonfoot,carryingwhate�ertheycould .Bordercrossingsoftenoccurredinthehoursofdarkness .
311 . EritreaclaimedUS$92,728,000ascompensationwithrespecttothisliabilityfinding .Itcontendedthat46,364personsexperiencedthesecon-ditions,basingthisnumberondatafromtheERRECdatabasereflectingper-sonswhoarri�ed“by�ehicle”andwhoreportedthemsel�estoha�e“sufferedfromunlawfulconditionsoftransport .”EritreasoughtUS$2,000foreachoftheseindi�iduals .
312 . EthiopiarespondedthattheCommission’sliabilityfindingshouldberead literallyandrestricti�ely, toco�eronlypersonswhowereexpelledfollowingSIRAAre�ieworwhomEthiopiaacknowledgedmightha�ebeenexpelledillegally .InEthiopia’s�iew,thetotalof thesetwogroups(22,735)shouldbereducedby25%,sincemanyexpelleesdidnotexperienceharshcon-ditions .Thisleftapotentiallyaffectedgroupofapproximately15,700people .
313 . WhiletheCommission’sliabilityfindingspokeofthetreatmentofpersons“expelledfromEthiopia,”theParties’discussionofconditionsofdeparturewasframedbyEritrea’scontentionthatthosewholeftEthiopiawereexpelled,andtheCommissionreflectedthisinitsliabilityfinding .Howe�er,itdidnotintendbythistoexcludeotherpersonswhoweremadetosufferharshandpotentiallydangerousconditionsofdeparture .Forexample,thethou-sandsofspousesandchildrenwhoaccompaniedpersonslawfullyexpelled(saidbyEthiopiatoha�enumberedabout22,000,allofwhomitsaidleft�ol-untarily)sufferedthesesameharshconditionsonaccountofEthiopia’sfailuretoassurehumaneandsafeconditions .PersonswholeftEthiopia�oluntarilydidnotwai�etheirrighttohumaneandsafetreatment .Theactofboardingthebusesdidnotabsol�eEthiopiaofitsresponsibilityunderinternationallawtotrytoassuredecenttreatmentandsafepassage .
314 . Eritrea’sDamagesGroupTwoMemorialalsoclaimedo�erUS$60millionascompensationfor“consequentialdamages,”reflectinginjuryallegedtoresultonaccountofthe“wrongfulimprisonment”ofmanypersonspriortotheirexpulsionordeparture .Asdiscussedpre�iouslyinconnectionwithEritrea’sGroupNumberOnedamagesclaims,theCommissiondoesnotrec-ognize “consequential damages” as a separate category of damages underinternationallaw .69Moreo�er,theCommissionheldattheliabilityphasethatEthiopia’sbriefdetentionofpersonswhowerenationalsofanenemyStatepriortotheirexpulsionor�oluntarydeparturedidnot�iolateinternationallaw .70Thisadditionalclaimisunfoundedinlawandbarredbyres judicata,andisaccordinglydismissed .
69 See SectionVI .D .3supra.70 PartialAwardinEritrea’sCi�iliansClaims,para .110 .
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315 . Althoughtheharshtransportstotheborderwerelimitedindura-tionandgenerallydidnotappear toha�ecaused lasting injury,Ethiopia’sfailuretoassurehumaneandsafeconditionsoftransportationortoa�oidfrequentandhazardouscrossingsbetweenthearmiesonfootwereseriousmatters,warrantingappropriatecompensation .Accordingly,theCommissionawardsUS$2,000,000ascompensationforfailuretopro�idehumaneandsafetreatmentintransport .
f. Property losses by Persons Previously residing in ethiopia
1. The Commission’s Liability Findings
316 . TheCommissionfoundliabilityforaseriesofinterconnectedEthi-opianactionsimpairingthepropertyofpersonswholeftEthiopiaduringthewar .InthePartialAwardinEritrea’sCi�ilianClaims,theCommissionfoundEthiopialiable:
11 . Forlimitingtoonemonththeperioda�ailableforthecompulsorysaleofEritreanexpellees’realproperty;
12 . Forthediscriminatoryimpositionofa100%“locationtax”onproceedsfromsomeforcedsalesofEritreanexpellees’realestate;
13 . FormaintainingasystemforcollectingtaxesfromEritreanexpelleesthatdidnotmeettherequiredminimumstandardsoffairandreasonabletreatment;and
14 . Forcreatingandfacilitatingacumulati�enetworkofeconomicmeas-ures,somelawfulandothersnot,thatcollecti�elyresultedinthelossofallormostoftheassetsinEthiopiaofEritreanexpellees,contrarytoEthiopia’sdutytoensuretheprotectionofaliens’assets .71
317 . TheCommissionmustfirstconsideradifferencebetweenthePar-tiesregardingthescopeoftheseliabilityfindingsin�ol�ingresidents’prop-erty .Thefindingswereframedintermsofactionsaffecting“Eritreanexpel-lees .”Ethiopiacontendedthattheythereforeappliedonlytothepropertyofthe15,475personsitacknowledgedwerelawfullyexpelled,plussomenumberofadditionalpersonswhomightha�ebeenunlawfullyexpelled .InEthiopia’s�iew,thislattergroupcouldha�enumberedatmostabout7,250persons .Incontrast,Eritreacontendedthathere,aswithpersonssubjectedtounlawfulconditionsofdeparture,theCommission’sfindingsmustbeinterpretedinlightoftheargumentspresentedtotheCommissionandastowhichitsfind-ingsresponded .Accordingly,inEritrea’s�iew,theCommission’sliabilityfind-ingsshouldapplytoallEritreanswholeftEthiopia,includingthosewholeft�oluntarily .
71 Id.,dispositif,SectionXIII .E .
602 ERITREA/ETHIOPIA
318 . Regardingthis threshold issue, theCommissionconcludes thatits liabilityfindingsareproperlyunderstoodtorelateonly todualnation-alswhowereindeedexpelledbyEthiopiannationalorlocalauthorities—themorethan15,000SIRAAexpellees,plusanothergroupofroughlysimilarsizewrongfullyexpelledbylocalauthoritieswithoutsuchre�iew .Membersofbothgroupstypicallywereforcedtolea�eEthiopiaprecipitouslyandunderconditionsthatdidnotallowthemtodisposeoforprotecttheirpropertyfairlyandeffecti�ely .TheystandincontrastwithpersonswholeftEthiopia�olun-tarily .These�oluntarydeparteesincludedsomesignificant,althoughdisput-ed,numberofSIRAAexpellees’spouses,childrenorotherfamilymembers .(Ethiopiaclaimedthatalmost22,000suchfamilymembersleft�oluntarily,anumberEritreaclaimedwasfartoohigh .)Whate�ertheirnumber,itappearsthat property losses affecting expellees’ family members would largely bereflectedintheclaimsofindi�idualexpellees,whotypicallyweretheprinci-palfamilybreadwinners .Manyotherpersonswhomadethedecisiontolea�eEritrea�oluntarilyhadtimeandopportunitytomakearrangementsforthedispositionorprotectionoftheirproperty .
2. Eritrea’s Claim
319 . Eritreadidnotdi�ideitse�idenceandargumentsamongtheCom-mission’sfourseparatepropertyfindingslistedabo�e,orbetweenthosefind-ingsin�ol�ingpersonspre�iouslyresidentinEthiopiaandtheCommission’sseparatefindingsin�ol�ingnonresidents’property .(Thelatterarediscussedseparatelybelow .) Instead,Eritreamadea singleextremely largeclaimforpropertylosses,seekingo�ertenbillionbirr,US$47million,andadditionalamountsinnakfaandSaudirials,fordepartees’andnon-residents’propertylossescombined .Thiscombinedclaimemphasizedthefinalliabilityfindingabo�e,regardingtheeffectofthecumulati�enetworkofEthiopianmeasures .
320 . ThemeasuresundertakenbyEthiopiatodepri�eEritreannation-alsofpropertyincludedstrictenforcementofprohibitionsonalienownershipofproperty, limitationsintheperiodofmandatorysale,rapidforcedsalesofimmo�eableproperty,discriminatoryandconfiscatorytaxationmeasures,and�igorousloancollections,amongothers .TheforcedsalesoftheEritreans’propertyweregenerallyconductedeitherbytheexpellee’sagent,throughtaxforeclosureproceedings,orundertheauspicesoftheEritreanPropertyHan-dlingCommittee,aninstitutioncreatedbyEthiopiatoo�erseethesaleofEri-treans’property .Ethiopiamaintainedattheliabilityphaseoftheseproceed-ingsthatanyresidualproceedsfromthesesales,afterdeductionsfortaxes,rentsorloanamounts,wereplacedintorestrictedaccountsinthenameofthepropertyowner .
321 . ThefollowingdiscussionaddressesEritrea’sclaimsforcompen-sationforpropertylossesbypersonswhoresidedinEthiopiapriortotheirdepartureduringthewar .InitsDamagesGroupTwoMemorial,Eritreacon-
partxvii—FinalAWARD eritrea’sdamagesclaims 603
tendedthattheEthiopianactionsandmeasuresin�ol�ingexpellees’propertyforwhichtheCommissionfoundliabilityga�eriseto“amassi�etransferofwealth”fromthesepersons .Itcontendedthatinits�iew,“thedocumentaryrecordsofthisfinancialfree-for-allareinEthiopianhands,”sothattheburdenshouldfalluponEthiopiatopro�eitscontentionsthatEritreans’propertywasproperlytreatedordisposedofthrough“routineandlegitimateprocedures .”EritreaalsomaintainedthattherestrictedaccountscitedbyEthiopiaarenota�ailabletotheexpelleesortheirlegalrepresentati�es,andthatinternationallawrequiresthatEthiopia’srestrictionsonexpellees’accesstotheaccountsbeliftedfollowingthecessationofhostilities .
322 . Eritrea’sDamagesGroupTwoMemorialre�iewedmaterialintherecordsaidtoshowthattheexpelleesincludedmanypersonsofsubstantialmeans,andsur�eyedindetailtheEthiopianmeasuresagainstEritreans’prop-ertyunderlyingtheCommission’sliabilityfindings .EritreacontendedthattheextentofEthiopia’smeasures,anditscontrolofinformationregardingthedispositionofexpellees’property,compelledapresumptionthatEthiopiawasresponsible,astheCommissionearlierfound,forthelossofallormostoftheassetsinEthiopiaofEritreanexpellees .
323 . Howmuchwerethoseassetsworth?Eritreacalculatedmostofitsclaimbyaddingtogetherthefullamountsofpropertylossesshownonthou-sandsofclaimsformsfilledoutbypersonsinEritrea .Theseincluded22,372formsfilledoutbypersonswhomEritreasaidpre�iouslyli�edinEthiopiaandwereexpelled,and2,244formssubmittedbyotherswhosaidtheyleft�oluntar-ily .Eritreaindicatedthat,togetherwiththeiraccompanyingminorchildren,thesegroups(expellees,�oluntarydeparteesandbothgroups’minorchildren)totaled49,278ofthe65,535personsintheERRECdatabase .72(Eritreaalsocited1,422claimsformsfilledoutbypersonswholi�edoutsideofEthiopiaatthetimeofthewar;theseareconsideredseparatelybelow,inconnectionwiththeCommission’sliabilityfindingsin�ol�ingnon-residents’property .)
324 . Eritreacontendedthat thereshouldalsobecompensationwithrespecttopersonswhodidnotfilloutERRECformsandtheirdependents .Accordingly,Eritreasoughtadditionalfixed-sumcompensationofUS$2,000foreachoftheremaining16,257indi�idualsintheERRECdatabase(65,535lessthe49,278personsdescribedabo�e),orapproximatelyUS$32 .5million .
325 . Eritrea’s Damages Group Two Memorial contained a fi�e-pagedescriptionofitsproceduresforcollectingandanalyzingtheclaimsofthethousandsofpersonswhoallegedtheylostpropertyonaccountofEthiopia’smeasures .Inbrief,aclaimsformwasdesignedandre�isedbyagroupofEri-
72 Therewasanunexplainedarithmeticaldiscrepancyofabout1,100persons inEritrea’spresentationofthenumberofexpelleesandtheirchildrenco�eredbytheclaimsforms .Eritreaclaimedthat22,374expelleesfilledoutclaimsforms,andthatthisgrouphadwiththem23,027minorchildren .Thiswouldsuggestthatexpelleesandtheirchildrentotaled45,401persons .Howe�er,Eritrea’sDamagesGroupTwoMemorialclaimedtherewere46,547personsinthesegroups .
604 ERITREA/ETHIOPIA
trean lawyersworkingwitha“focusgroup”ofexpellees .Formsthenweredistributedtoindi�idualsclaiminglossesbyEritreanlegalpersonnelworkinginse�eralEritreantownsandinanofficeinAsmara .AnEritreanattorneyinter�iewedeachclaimantsubmittingaformtoenhanceaccuracyandcom-pleteness .Someclaimantspro�idedsupportingdocuments,buttherewasnorequirementtodoso .Therewasnoindicationthatamountsclaimedontheformswerecheckedagainstsupportinge�idence,orthattherewasanysystemofqualitycontrolontheamountsclaimed,otherthantheinter�iewatthetimetheformwassubmitted .Eritreasummarizedthetotalamountsclaimedonmorethan26,000claimsformsonamassi�espreadsheetsubmittedwithitsDamagesGroupTwoMemorial .Eritreainitiallycontendedthatthisdocu-ment(whichwasa�ailableinbothpaperandelectronicform),togetherwithadeclarationbymembersofitslegalstaffexplainingtheclaimsformsproc-ess,constitutedsufficiente�idencetosupportthefullamountsclaimed .Initsrebuttale�idencepriortotheMay2008hearing,Eritreasubmittedaboutfortyoftheclaimsforms,togetherwithsomesupportingdocumentationforthoseforms .
3. Ethiopia’s Position
326 . AswithEritrea’sclaimsformsforlootinglosses,EthiopiaraisedmultipleobjectionstoEritrea’sclaimsformsprocess .Tobegin,itmaintainedthatundocumentedanduntestedclaimsoflossbyindi�idualsonclaimsformswere inherentlyunreliable,andwerenotcrediblee�idenceof theamountsclaimed .EthiopiarecalledinthisregardEritrea’s�igorousobjectionstoEthio-pia’sclaimsformsatearlierstagesoftheclaimsprocess,andtheCommis-sion’spastreser�ationsregardingsuchforms .73ItnotedthatEritrea’sDamagesMemorialanditssupportinge�idencedidnotincludeanyoftheclaimsformsoranysupportingdocumentationfortheamountstheyclaimed .InEthiopia’s�iew,Eritrea’sspreadsheetsummarizingdatafromitsformswassimplynote�idenceoftheclaimedamountsofloss .
327 . As indicated abo�e, Ethiopia contended that the Commission’sliabilityfindingswerelimitedtolossesbyexpellees,andthatclaimsoflossbyotherswholeft�oluntarilywerenotcompensable .Inits�iew,compensa-blepropertylosseshadtobelimitedtoadequatelydocumentedlossesbythe15,475personslawfullyexpelledfollowingSIRAAre�iewandbythesmallergroupwhomightha�ebeenunlawfully expelled .Ethiopiacontended thatthislattergroupcouldcontainatmost7,250persons,andprobablywasmuchsmaller .
328 . EthiopiacontendedthatthetypesofpropertylossidentifiedontheformsdidnotcorrespondtotheCommission’snarrowliabilityfindings,and
73 PartialAward,PrisonersofWar,Ethiopia’sClaim4BetweentheFederalDemo-craticRepublicofEthiopiaandtheStateofEritrea(July1,2003),para .41 .
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thattheformsaskedclaimantstoincludetypesoflossforwhichtheCommis-siondidnotfindliabilityandforwhichEthiopiawasnotresponsible .Itarguedfurtherthatsomequestionsontheformswereleadingorotherwisein�itedself-ser�ingandunreliableanswers .
329 . Ethiopiamaintainedfurther thatEritrea’scalculations improp-erlyincludedse�eralhundredduplicateclaimsforms(Ethiopiacitedwhatitbelie�edtobeabout850ofthese),aswellas547filedbypersonswhoobtainedEritreanidentitycardsafterthereferendumandwho, inEthiopia’sunder-standing,couldnotha�ebecomedualnationalspursuanttothereasoningoftheCommission’sdecisiononEritrea’sCi�iliansClaim .
330 . Finally,EthiopiarepresentedthattheproceedsfromforcedsalesandotherassetdispositionswereplacedinaccountsintheCommercialBankofEthiopiacreatedforthebenefitoftheexpelleesanddepartees,andthatEri-treanshadbeencompensatedthroughthoseaccounts .Ethiopiadidnotpro-�ideanye�idenceorinformationregardingtheexistenceofthoseaccounts,theiraccessibility,ortheamountssaidtoha�ebeendeposited .Withrespecttothepri�atebankaccountsofexpelleesthatexistedwhentheywereexpelled,Ethiopiaarguedthattheyremaineda�ailabletotheexpelleeowners .
4. The Commission’s Conclusions
331 . Expellees’EconomicCircumstances.InassessingEritrea’sclaimsforresidents’propertylosses,theCommissionfirstconsideredEritrea’sargu-mentthatexpellees’o�erallsocialandeconomiccircumstancespro�idedsub-stanceandcredibilitytothe�erylargeamountsclaimedbasedontheclaimsforms .Thee�idencedidnotpro�idewhollycon�incingsupportforEritrea’sargumentsinthisregard .EritreaoffereddatafromtheERRECdatabaseindi-catingthatabouttwo-thirdsoftheexpelleescamefrommajorurbanareas,including56%fromAddisAbaba .E�idencefrom�arioussourcesindicatedthattheexpelleesincludedsomebusinessmen,merchants,professionalper-sonsandotherswhomightha�ehadrelati�elysubstantialincomesandassets .Ne�ertheless,thesemoreaffluentpersonsapparentlywereamodestpropor-tionofallthosein�ol�ed .Forexample,EritreacontendedthattheERRECdatabaseincluded28,860headsofhouseholdsamongitsregisteredpopulationof65,535persons .Theseincluded2,182personswhodescribedthemsel�esasmerchants(about7 .6%oftheheadsofhouseholdandabout3 .3%ofthetotalpopulation) .Therewere245healthcareprofessionals(doctors,dress-ers,nursesandpharmacists—fewerthan1%oftheheadsofhousehold),andjust114engineers,programmersandotherspecializedtechnicalexperts .TheCommissionacceptsthatsomeofthesepersonshad—andlost—substantialassets .Howe�er,itisnotclearthat,takenwiththemuchlargerproportionofpersonsontheERRECdatabasewhowerenotincomeearnersorwhoengagedinlessremunerati�eoccupations,theyhadandlostpropertyworthmorethanonebillionU .S .dollars .
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332 . Othere�idencereinforcedthe�iewthattheaffectedpopulationwasmoreeconomicallydi�erse,andlessaffluento�erall, thanEritreacon-tended .Eritrea’se�idenceincludedanAugust1998excerptfromanEthio-piannewspaperlistingse�eralhundredEritreanpersonsandbusinesseswhoseassetswerefrozen .Eritreasuggestedthatthisshowedtheaffectedpopulationtoha�ebeenhea�ilyweightedwithpersonsofmeans .Howe�er,thelistalsoincludedasignificantproportionofpersonssuchasgasstationemployees,teachers,barberandshoeshopowners,go�ernmentemployeesandotherswhoseemunlikelytoha�ehadextensi�ewealth .EritreacitedERRECstatisticsshowingthatexpelledheadsofhouseholdtendedtobebettereducatedthantheEthiopianpopulationatlarge .Howe�er,thesesamestatisticsshowedthat34%oftheseindi�idualswereilliterateandfewerthan9%hadanypost-sec-ondaryeducation .EritreaalsocitedERRECdataindicatingthatthea�erageheadofhouseholdexpelledfromAddisAbabaandfourother largeEthio-piancitieshadana�erageincomeofjust263birramonth .Thisisappreciablyhigherthana�erageincomesinEthiopiaasawhole,butdidnotindicategreatpersonalwealthonthepartofthepopulationo�erall .Takenasawhole,therecordindicatedthatexpelleesprobablyweresomewhatbetteroffeconomical-lythanmostpersonsinEthiopia,butitdidnotsupporttheamountsclaimedbyEritreabasedonitsclaimsforms .
333 . TheCommissionalsohasseriousreser�ationsregardingthereli-abilityoftheamountsoflossclaimedthroughEritrea’sclaimsformsproc-ess .TheCommissionnotedearlier in thisAward itsdoubts regarding theclaimsformprocessEritreausedtoquantifylossesfromlootingandpropertydestruction in itsGroupNumberOnedamagesclaims .74Similarconcernsapplyhere .Anyprocessthatin�itesinjuredpersonstoestimatetheirlossesallowsthemtodosoinwaysthatbenefittheirinterests .Otherrecentclaimsprocessesin�ol�ingmultipleclaimsforindi�idualinjuryha�eadopted�ariousmeasurestocontrolthis .First,theamountofcompensationpro�idedhasbeensubstantiallyreduced,oftentoamuchsmallerfixed-sum .Alternati�ely,orinaddition,someprocessesha�escrutinizedsampleclaimsandtheirunderly-inge�idencetocheckthereliabilityofmuchlargergroupsofclaims .Eritreadidnotutilizeeitherapproachhere .Instead,itessentiallyclaimedforthefullamountsoflossesindicatedonitsclaimsformswithoutscrutinizingsampleclaims .
334 . ThislefttheCommissionwithnomeanstotesttheaccuracyofthelargeamountsEritreaclaimed .Eritrea’sDamagesGroupTwoMemorialstatedthatindi�iduals’statementsoflosswere“supportedby”�ariousformsofdocumentsande�idence .Howe�er,therecorddidnotshowthatpersonsfillingoutclaimsformswererequiredtopro�idesupportingdocumentationorthatamountsstatedontheformswerecheckedagainstanydocumentationthatwasoffered .Eritreasubmittedonlyasmall,non-randomlyselectedand
74 See SectionVI .B .3supra.
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statisticallyinsignificantnumberofclaimsformsandtheirsupportingdocu-ments,andthenonlyasrebuttale�idence .
335 . TheCommission’sreser�ationsregardingtheclaimsformproc-esswerereinforcedbythesizeofresultingclaims .Forexample,the22,372formsfilledoutbypersonsallegedlyexpelledfromEthiopiaapparentlygener-atedlossestotalingabout8 .23billionbirr,plussmalleradditionalamountsdenominatedindollarsandnakfa .Thisequalsatleast368,000birrperform .The2,248 formsfilledoutbypersonswho identifiedthemsel�esasha�ingdeparted�oluntarilyclaimede�enhighera�eragelosses,about456,000birrperform .(Theselatteramountsarenotinanye�entcompensable,asEthiopiais liableonlyforexpellees’ losses .)Someindi�idualsamongthethousandswhofilledoutformsdoubtlessexperiencedlossesoftheseore�enmuchlargermagnitudes .Howe�er,theCommissiondoesnotregardthesele�elsoflossperformasacrediblemeasureofEritreandamagesinthecontextofthelargeanddi�ersepopulationofformerresidentsofEthiopia .
336 . Gi�enthelimitationsofEritrea’sclaimsformsasthefoundationofitsclaimsforexpellees’propertylosses,theCommissionhashadtomakeitsbestapproximationofexpellees’aggregatepropertylosses .Thisapproxima-tionmaynotfullyreflectthelossesofthesmallnumberofpersonswhohadandlostsignificantwealth .Someoftheseapparentlyhadthemeanstodocu-menttheirlosses,asthesmallgroupofclaimsformsandsupportingdocu-mentsfiledwithEritrea’srebuttale�idencesuggests .Howe�er,intheabsenceofastructuredpresentationoftheselossesandofthesupportinge�idenceforthem,theCommissionhasnobasistoassesshowmanytrulywealthypersonsmayha�ebeenexpelled,andtheextentoftheircompensablelosses .
337 . Inestimatingtheamountofcompensation,theCommissionhasbeenguidedbyitsearlierassessmentsofthenumbersofdualnationalsexpelledbyEthiopia,boththroughtheSIRAAprocessandunlawfullyatthehandsoflocalofficials .Italsohastakenaccount,inter alia,ofthee�idenceintherecordregardingthe�alueoflossesofhousingandhouseholdpropertyfromwar-relatedcausesinZalambessaandotherlocationsinEthiopia .Howe�er,inthisregard,ithasbeenmindfulthatsomeofthoseotherlossesoccurredinloca-tionsthatwerelessde�elopedandexpensi�ethanAddisAbabaandtheotherurbanlocationsoftwo-thirdsoftheexpellees’homes .
338 . Thebankaccountsat issue in thisclaimgenerally fell into twogroups:restrictedaccountssetupbyEthiopiatodeposittheproceedsofliqui-datedpropertybelongingtoexpellees,andpre-existingaccountsthatconsti-tutedpartoftheexpellees’propertywhentheywereexpelledbeginninginMay1998 .Withrespecttotherestrictedaccounts,Eritrea’sclaimsweredenied .75Therewasfurthermorenoproofofthetotalnumberoftheseaccountsoroftheamountstheysupposedlyhold .Norwasthereproofthatexpelleesnowha�eaccesstothem;thee�idencewastothecontrary .Accordingly,theCommis-
75 PartialAwardinEritrea’sCi�iliansClaims,para .146 .
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siondidnottakethemintoaccountindeterminingthecompensationduetoexpelleesfortheirpropertylosses .
339 . Astothepersonalbankaccountsthatconstitutedpartoftheexpel-leepropertyatthetimeofexpulsion,Ethiopiahadadutyunderthejus in bello toreturntheseaccountsafterthewar .While,asindicatedintheCommission’sPartialAwardinEritrea’sCi�iliansClaims,Statesin�ol�edinarmedconflictha�etherighttofreezeenemyassetswithintheir jurisdictionandpre�enttheirtransfertoanenemy,itremainstheirobligationtoprotectsuchassetsforreturntotheirownersorotheragreeddisposition .76Howe�er,exceptforthesixindi�idualclaimsaddressedinSectionVIIIofthisAward,andacom-parati�elytinyhandfulofindi�idualsidentifiedinEritrea’srebuttale�idence,therewasonlyasmallamountofanecdotale�idenceregardingtheamountsin�ol�ed .Accordingly,theCommissionhassoughttoincludeexpellees’bankaccountsasanelementoftheaggregateofexpelleepropertyforwhichitispro�idingcompensation .
340 . Basedonitsanalysisofthee�idencea�ailableintherecord,theCommissionawardsEritreaUS$46,000,000ascompensation in respectofexpellees’lossesofpropertyonaccountofEthiopia’sunlawfulactions .
G. Property losses by non-residents
1. The Commission’s Liability Findings and Eritrea’s Claim
341 . In its Claim 24, Eritrea sought compensation for (a) “seizureof�ehiclesandothermo�ablepersonalproperty”ownedbypersonsli�ingoutsideofEthiopia,(b)“thegoingconcern�alueofallbusinessesownedbynon-residentEritreansthatsufferedeconomiclossasaresultoftheEthiopianexpulsionsofEritreannationalsandpersonsofEritreannationalorigin,”and(c)“lossresultingfromtemporarydepri�ations,or,inthealternati�e,topayfullmarket�alueforalltherealpropertyitexpropriated .”Eritrea’sclaimwaslimitedtolossesin�ol�ingnon-residents’�ehicles,businessesorrealproperty .(Attheliabilityphase,Eritreaexpandedthisclaimtoincludelossesresult-ingfromthedi�ersionofEritrean-ownedcargotoDjibouti .TheCommissionfoundthedi�ersionclaimwasoutsideofitsjurisdiction,becauseitwasnotincludedinEritrea’sclaimsasfiledinDecember2001 .77)
76 Id.,paras .151&152 .See also Article46ofGene�a IV, supra note47, requir-ingthatrestricti�emeasuresaffectingprotectedpersons’property“shallbecancelled,inaccordancewiththelawoftheDetainingPower,assoonaspossibleafterthecloseofhostilities .”
77 PartialAward,LossofPropertyinEthiopiaOwnedbyNon-Residents,Eritrea’sClaim24 .BetweentheStateofEritreaandtheFederalDemocraticRepublicofEthiopia,para .14 .
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342 . InitsPartialAwardofDecember19,2005inEritrea’sClaim24forlossofPropertyinEthiopiaOwnedbyNon-Residents,theCommissionfoundEthiopialiable:
1 . Forfailingtopro�idefullcompensationfortrucksandbusesownedbyEritreansthatwererequisitionedbyEthiopiaduringtheconflictandwerenotreturnedtotheirowners .2 . Forcreatingandfacilitatingacumulati�enetworkofeconomicmeas-ures,somelawfulandothersnot,thatcollecti�elyresultedinthelossofallormostofthebusinessesandimmo�ablepropertyinEthiopiaofnon-resi-dentEritreans,contrarytoEthiopia’sdutytoensuretheprotectionofaliens’assets .78
343 . Asnotedabo�e,Eritrea’sGroupNumberTwocompensationclaimsdidnotdistinguishbetweenclaimsforresidents’andnon-residents’propertyorconformtotheCommission’sspecificliabilityfindings .Inparticular,theclaim for compensation of nonresidents’ losses was not confined to lossesof�ehicles,businessesandimmo�ableproperty .Instead,Eritreacontended(withoutexplanation)that“thepropermeasureofdamagesunderthecircum-stancesisthetotal value oftheindi�idualexpellee’sornonresidentpropertyowners’lostassets .”Thus,Eritreasoughtcompensationforsometypesofloss-esnotincludedinitsoriginalclaim,andforwhichtheCommissiondidnotfindliability .Theclaimforcompensationforthe“total�alue”oflostassets,insofarasitembracesnon-residents’non-businesspersonalpropertyorotherlossesnotco�eredbytheCommission’sfindingsofliability,wasnottimelyandisherebydismissed .
2. Claims Involving Trucks and Other Vehicles
344 . Beforethewar,hea�ytruckscarryingdryandliquidcargoweremainstaysofEritrea’sandEthiopia’stransportationsystems .Eritreans,typi-cally indi�idualentrepreneursor small familybusinesses,ownedmanyofthesetrucks .Thetrucksoftenwereboththeowners’principalassetandtheirsourceofli�elihood .TherecordcontainedmultipleaccountsbyEritreanswhobeganasdri�ersorassistantdri�ers,andwhograduallyassembledthemeanstobuyprogressi�elynewerandbettertrucksortoaddtrailers .Thelossofatruckbroughtse�ereeconomicconsequencesforadri�erandhisfamily .
345 . Beforethewar,muchofEthiopia’simportandexporttradepassedthroughtheEritreanportsofMassawa(primarilyser�icingTigray)andAssab(ser�ingAddisAbabaandotherareas) .Freightmo�edtoandfromtheseportsontrucks .TruckstoorfromAssabcrossedtheborderatBure;truckstoorfromMassawacrossedatZalambessa/Serha .Bothcrossingssawhea�yfightingduringthewar .ThePartiesdidnotdisputethesignificanceoftrucktranspor-tationortheroleofEritrean-ownedtrucks .ThedeclarationofaseniorEthio-
78 Id.,dispositif,SectionV .B .
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piantransportationofficialconfirmedthat“[p]riortotheconflict,thereweremanyEritreanownersoftruckswhowereengagedintransportoperationsinEthiopia .Thiswasparticularlysointhefreightandoiltransportsector .”
346 . Eritreapresentedasubstantialamountofcrediblee�idenceregard-ingtheseizuresofEritrean-owned�ehicles,includingmorethanse�entydec-larationsbydri�ersandowners,contemporaneouscorrespondenceandlistsidentifyingseized�ehicles,andEthiopiannewspaperaccounts .Mostdri�ers’declarationsincludedcopiesofregistrationdocumentspro�ingtheexistence,typeandEritreanownershipoftheseized�ehicles .Participants’accountsofthesee�entssometimes�ariedregardingprecisedatesandthenumbersof�ehi-clesassembledortakenbyEthiopianauthoritiesatparticularplaces,buttheaccountscon�ergedoncorepointsandwerecorroboratedbyothere�idence .
347 . The e�idence showed that Ethiopian authorities systematicallyseizedmanyEritreanownedtrucksandbusesinAddisAbabaandothercit-iesandontheroadstothebordercrossingsatBure,Zalambessa/SerhaandintoDjibouti .Thee�idencealsoestablishedthat,afterthewar,thesetruckswerenotreturnedtotheirowners,norwascompensationofferedorgi�en .Howe�er,thee�idencedidnotdirectlyaddressacentralquestion—thetotalnumberoftrucksseizedwithoutcompensation .Accordingly,theCommissionwasrequiredtoresorttoestimateandapproximationonthiskeyissue,guidedbyitsre�iewofe�idencepre�iouslyadduced .
348 . EthiopiaacknowledgedthatitrequisitionedmanyEritrean-ownedhea�y�ehiclestomeetwartimetransportationneeds,althoughitcontendedthatthiswastemporaryandthat�ehicleslaterwerereturnedtotheirown-ersorwerea�ailableforownerstocollectinEthiopia .ItalsocontendedthatonlyEthiopian-registeredtruckswererequisitioned .Attheliabilityphase,theCommissionrejectedthesecontentionsasunpro�en .
349 . Ethiopia’sCounter-MemorialattheliabilityphaseinoppositiontoEritrea’sClaim24setoutits�iewofthematter:
61 . . . .Ethiopia,amidstanunexpectedwar,wasforcedtorequisitiontruckstobeusedtotransportgoodstoEthiopiaandforuseindefenseofthecoun-try .It isnotanaccidentthat the�ehiclesrequisitionedaretrucks,andoften,asparticularlystressedbyEritrea,fueltrucks .AsstatedbyEritreaitself,“[t]hetransportationmarketinEthiopiawasfordecadeslargelydominatedbypersonsofEritreanextractionandthispatternchangedlittleafterEritreanindependence .” . . .
65 .InsupportofEritreaandinoppositiontoEthiopia,manyoftheownersrefusedtopermittheirfueltruckstobeusedandhidtheirtrucksingaragesandpri�atecompounds .EthiopiawasforcedtoapplyRegulationNo .14/84“Pro�iding forRegulationof theRoadSector”permitting theEthiopianRoadsAuthorityduringanemergencycrisistofacilitatethepro�isionoftransportser�icesinthecountry .
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66 .Ethiopiarequisitioned4000trucksthatwereregisteredinEthiopiatotransportoilandfoodaid .350 . The e�idence showed that Ethiopian soldiers, customs officials
orpoliceseizedsignificantnumbersofEritreantrucksatse�erallocations .BeginninginlateMay1998,manyweretakenatEthiopiancheckpointsontheroadstoAssabandDjibouti .TherewerenumerousaccountsofEritreantrucks,bothinboundandoutbound,beingstoppedandheldatDicheotto .LoadedinboundtrucksoftenwereallowedtoproceedtoAddisAbabawiththeircargoes,manyunderguard,andthenwereseizedafterunloadingorsubsequently .TherealsoweremultipleaccountsofgroupsofoutboundtrucksbeingheldunderguardinornearDicheotto .Theseaccountsdescribedgroupsoftrucksandtheirdri�ers,�aryinginnumbersfromaroundtwentytoforty,beingheldatEthiopianmilitarycampsfor�aryingperiods .Thedri�ersthenwerecompelledtosurrendertheirtrucks,afterwhichtheywereallowedtomaketheirwaytoAddisAbaba .
351 . EthiopiansoldiersandfinancepolicealsostoppedandheldEri-treantrucksatMille(or“Mile”) .InboundloadedtrucksoftenwereallowedtoproceedtoAddisAbaba,sometimesunderguard .Howe�er,sometruckswereseizedatMille,anddri�erssawtheirlicenseplatesbeingchangedtomilitaryplates .AtleasttwotruckswereforciblyusedtohaulfreightforofficialsoftheAfarregionbeforebeingtakeno�erbytheEthiopianmilitary .
352 .Othertrucks,includingmanythathadcarriedWorldFoodProgram(“WFP”)reliefgrainfromMassawatoMekele,wereseizedatAdigrat,thefirstlargetownsouthofZalambessa .Therecordincludedthirteenlargelyconsist-entaccountsoftrucksandtheirdri�ersbeingheldthereunderguardearlyinthewar .Theseaccountsdescribed�aryingnumbersoftrucksinthisgroup;mostplacedthenumberbetweenthirtyandforty .Se�eralof thesedri�ersdescribedbeingforcedtohaultroopsandmilitarymaterialtoZalambessaduringthisperiod .Later,allofthedri�ersweremadetoturno�ertheirkeys,transportedtoamilitarycampatAgbe,andheldforaboutsixweeksbeforebeingallowedtoreturntoEritrea .TherecordincludedanOctober1998letterfromEritrucko,oneoftheWFP’sEritreanprimetruckingcontractors,seekingWFP’sassistanceinreco�ering22ofthesetrucksseizedaftercarryingWFPgrainfromMassawatoMekele .
353 . TherewerealsofouraccountsofEritreantrucksandbusesbeingtakenbymilitaryorpoliceatGondorandatRama .
354 . The largestnumberofEritrean�ehiclesappeared toha�ebeenseizedwhileparkedinornearAddisAbaba .Asnotedabo�e,manyloadedinboundtruckswereallowedtoproceedtoAddisAbaba,oftenunderguard .Afterunloading,trucksthatwerenotseizedwereorderedtoremainparkedinpublicorpri�ategarages .Otherdri�ersparkedingarages�oluntarilyaftertheylearnedofthe�ehicleseizures .Inaddition,earlyinthewar,Eritrean-licensed�ehicleswerebannedfromdri�inginEthiopia,abanlaterextendedtoEthiopian-licensed�ehiclesownedbyEritreans .AtleastonelargeEritrean
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truckingassociationcounseleditsmemberstogaragetheirtruckswhilemat-tersclarified .Dri�ersfrequentlyremainedwiththeirstored�ehiclesforweeksore�enmonths .
355 . Therecord included thirty-eight largely consistent accountsbydri�ersorownersdescribinghowtheir�ehicles,andothersownedbyEri-treans,wereseizedfromgarages .Theseaccountsoftenincludedeyewitnessdescriptions .Theywereconsistentregardingthemethodsusedtolocateandseize�ehicles,andoftendescribedmultiple�ehiclesbeingtakenfromapartic-ulargarage .Multipleaccountsdescribedhowsoldiersreplacedexistinglicenseplateswithmilitaryplatesbeforeremo�ingthetrucks .
356 . How Many Trucks?Somedri�erswhoremainedwiththeir�ehi-clesinAddisAbaba,andotherswith�ehiclesseizedelsewhere,unsuccessfullypetitionedEthiopia’sMinistryofTransportandotheragenciesforrelief .TherecordincludedapetitiontotheMinistryofTransport,signedbyse�enty-fi�eownersanddri�ers,referringtotheconfiscationofo�er140trucks .Theseincludedninety-fourinAddisAbaba,forty-sixinAfar(twenty-threeatDiche-ottoandtwenty-oneatMille),and“anunspecifiednumber”inTigray .Nineofthese�enty-fi�epetitionerswereamongEthiopia’sse�enty-plusdeclarants .
357 . Takentogether,theaccountsofindi�idualdri�ersandownersinEritrea’sdeclarationsdescribed the seizureof approximately twohundredtrucksandbuses,butitappearsthatthetotalnumberwasmuchlarger .Asnotedabo�e,Ethiopia’sliabilityphasee�idenceincludedthedeclarationoftheGeneralManagerofEthiopia’sRoadTransportAuthoritystatingthat“closeto4,000”truckswithEthiopianlicenseplateswererequisitioned,althoughthisofficialalsomaintainedthat“[t]herewasnoEritreanregistered�ehicle . . .in�ol�edinthisprogram .”(ManyEritrean-ownedtruckswereregisteredinEthiopia .)ThefirstofhisstatementsshowedthemagnitudeofEthiopia’swar-timeeffortstoobtainhea�y�ehicles .Thesecondcouldbetrue,iftheseizureofEritrean-registered�ehicleswasconductedunderanadditional,separatego�ernmentprogram .
358 . TherecordalsoincludedtwoarticlesfromtheEthiopiannewspa-perEthiop suggesti�eofthenumberofseized�ehicles .One,datedNo�ember25,1998,referredtoongoingsearchesforhiddenEritreantrucks,andto2,000Ethiopiandri�ersbeingcalleduptoreplaceEritreandri�ers .Ofthese,“[t]hetransportandcommunicationsdepartmenthasstated that ithasaccepted1,200Ethiopiandri�ersamongthosewhowereregistered .”Assumingthatmanytruckscarriedadri�erandanassistant(asapparentlywascommon),thissuggeststhatlatein1998—aftermanyEritreantruckshadbeenseized—EthiopiawaslookingtoreplaceEritreandri�ersinatleastsixhundred�ehi-cles .AsecondEthiop article,datedDecember3,1998,describedeffortsby2,000EthiopianpolicetosearchforconcealedEritreantankertrucks .Thisarticleallegedthatfrom350tofi�ehundredsuchEritreantankertruckshadbeenhidden,andthatthego�ernmenthadlocatedallbutforty-four .
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359 . Anotherhint,althoughofatbestlimitedprobati�e�alue,canbederi�edfromEritrea’sanalysesofdatafromitsclaimsforms .Eritreaindicatedthatnon-residentsclaimedlossesofabout314millionbirrfor“mo�eableprop-erty,”whichincludedlost�ehicles .TheEritreantruckdri�ers’declarationssuggestedthattherewasasteadyandpredictablemarketforlargetrucks;theirdeclarationswerelargelyconsistentregardingthe�aluesoftrucksofparticularmakes,modelsandages .Asdiscussedfurtherbelow,Eritreaestimatedthatthea�erage�alueoftheseizedtruckswasabout327,000birr .EthiopiadidnotrebutthisamountanditappearedreasonabletotheCommission .Arbitrarilyassumingthatthe314millionbirrclaimedfor“mo�eableproperty”ontheclaimsformswastwicethe�ehicles’actual�alue,anddi�iding157millionbirrbyaper-�ehicle�alueof327,000birr,theresultsuggeststhattheclaimsformsreflectedlossofabout480�ehicles .
360 . Despitetheseindicators,therecorddidnotclearlyestablishtheactualnumberofseizedtrucksandbuses .Eritreadidnotsuggestaspecificnumber,ore�enarange .Eritrea’sClaim24Memorialbrieflycontended,with-outanalysisorexplanation,that“hundreds”oftruckswerestoppedontheroadstoAssabandDjibouti,andthatthetotaltakenwas“manytimeslarger”thanthe“approximately500”citedintheDecemberEthiop article .Howe�er,Eritreadidnotfurtherexplainorsupportthiscontention .
361 . Gi�enthelimitationsoftherecord,theCommissionhastomakeitsbestestimateofthenumbersof�ehiclesin�ol�ed .Takingaccountofallofthee�idence,itconcludesthatEthiopiaseizedatleastsixhundredtrucksandbusesthatwereinEthiopiaandwereownedbyEritreans .Theactualnumbermayha�ebeenhigher,perhapsmuchhigher .Howe�er,asEritreacouldnotindicateorsubstantiatetheactualnumberin�ol�ed,itmustbeartheconse-quencesiftheCommission’sestimatefallsshort .
362 . Eritrea’swrittenpleadingsalsofailedtocalculatethe�alueoftheseized�ehicles .Accordingly,theCommissionaskedEritreaattheMay2008hearingtoidentifye�idencealreadyintherecordregardingtheir�alue .Eri-trearespondedbycalculatingthea�erage�alueofasubstantialnumberofindi�idual�ehiclesidentifiedinitswitnessdeclarations,determiningthea�er-age�aluetobe327,875birrasofthetimethe�ehicleswereseized .Ethiopiaobjectedtothiscalculationasnewe�idence,butdidnototherwiserebutit .TheCommissionconsidersthatthisa�erage�alueappearsreasonablyrepresenta-ti�eoftherangeof�ehiclethatEthiopiaseized .ItalsoappearsreasonableinlightofEthiopia’sclaimfor850,000birrforahea�ygraintruckofacommonsizeandmakethatwasdestroyedintheAdigratgrainwarehousefire .Accord-ingly,theCommissionaccepts327,000birrasreflectingthea�erage�alueofthe�ehiclesEthiopiaseized .
363 . Accordingly, the Commission awards Eritrea compensation ofUS$24,525,000fortheunlawfulfailurebyEthiopiatoreturnorcompensateEri-treaafterthewarforthe�ehiclesitrequisitionedfromnon-residentEritreans .
614 ERITREA/ETHIOPIA
H. other non-resident Property
364 . Inadditiontoseekingcompensationfor�ehicles,Eritreaclaimedabout625millionbirr forother lossesbynon-residentson thebasisof itsclaimsforms .ThisportionofEritrea’sclaimposedmanyproblems .Itwassubject to thesignificantuncertainties inEritrea’sclaims formprocess,asdescribedabo�e .Itincludedalltheclaimedlossesofnon-residents,andthusincludedpotentiallylargelossesnotincludedinEritrea’soriginalformulationofitsclaimandforwhichtheCommissiondidnotfindliability .And,unlikethecaseoftrucksandbuses,therewasnotasubstantialbodyofe�idenceintheliabilityrecordtoaidinestimatingtheextentofloss .
365 . Thee�idencedidsuggestthatse�eralhundrednon-residentEri-treanssufferedlossesofpropertyinEthiopiaonaccountofEthiopia’sactionsduringthewar .Accordingly,theCommissionisreluctanttorejectthisrequestforcompensationoutofhand .Gi�enthelimitationsoftherecord,theCom-missiondeterminedtotreattheseclaimslikeclaimsin�ol�ingexpellees’lossesofproperty .Takingaccountofitsbestestimateofthenumberofnon-resi-dentswholostpropertyco�eredbytheCommission’sliabilityfindings,andadjustingforthosewhoclaimedfor�ehicles,theCommissionawardsEritreaUS$1,500,000ascompensationforthisgroup .
i. unlawful detention of eritrean Civilians
1. The Commission’s Findings and Eritrea’s Claim
366 . InitsPartialAwardinEritrea’sCi�iliansClaims,theCommissionfoundEthiopialiable:
9 . ForholdingEritreanci�iliansonsecurityrelatedchargesinprisonsandjailsunderharshandunsanitaryconditionsandwithinsufficientfood,andforsubjectingthemtobeatingsandotherabuse;
10 . FordetainingEritreanci�ilianswithoutapparentjustification,hold-ingthemtogetherwithprisonersofwar,andsubjectingthemtoharshandinhumanetreatmentwhilesoheld .79
367 . Eritreatreatedthesetwofindingstogether,claimingUS$40mil-lionascompensationinrespectofthewrongfuldetentionof2,000Eritreanci�ilians .ThisincludedUS$20million(US$10,000perperson)forinjurythatEritreaclaimedtoresultfromtheenforcedindoctrinationofall2,000ci�il-ians .EritreaclaimedanotherUS$6million(US$3,000perperson),reflectinginjuryattributabletoinhumaneconditionsaswellasadditionalpercapitaamountsreflectingthe�aryinglengthsoftimethatEritreanci�iliansweredetainedorincarcerated .
79 PartialAwardinEritrea’sCi�iliansClaims,dispositif,SectionXIII .E .
partxvii—FinalAWARD eritrea’sdamagesclaims 615
368 . Eritrea’scompensationclaimin�ol�edse�eralseparategroupsofci�iliansallegedlywrongfullydetainedwithinthescopeoftheCommission’sliabilityfindings .Thesewereall identifiedinEritrea’sclaimsat the liabili-typhase,andtheCommission’sPartialAwardsnotedthattheirdetentionsmightentitleEritreatocompensationatthedamagesphase,dependingonthefacts .Eritrea’sDamagesGroupTwoMemorialthusincluded�ariouspersonsaddressedinEritrea’searlierclaims,includingtruckdri�ersandtheirassist-antsdetainedduringtheearlymonthsofthewar,animprisonedguardanddri�erontheser�icestaffofEritrea’sEmbassyandtheguard’steenageson,andci�ilianswronglyheldasprisonersofwar .
369 . ThepresentationofthisclaiminEritrea’sDamagesMemorialseemedlargelyintendedtoremindtheCommissionofitsearlierliabilityAwardsandof the e�idenceunderlying them .Eritrea’s claim that2,000Eritreanci�ilianswereunlawfullydetainedrestedprimarilyontworeportspublishedin2000,onebyAmnestyInternationalandtheotherbytheU .S .DepartmentofState .Theseindicatedthat1,200ci�ilianswereheldincus-todybyEthiopiaduringthewarand,accordingtotheStateDepartmentreport,that“hundredsofothers”wereheldinpolicestations .Insupportof itsclaimed largernumberof2,000,Eritreacitedprisonerofwardataandabroadrangeofwitnessstatements fromthe liabilityphase in�ol�-ingPOWs,thewarfronts,ci�ilians,non-residentpropertyandtreatmentofdiplomats .Eritreaalsoarguedthatitsestimateofthelargenumberofci�iliansheldwithPOWswas�alidatedby itsanalysisofEthiopia’s“ERPOW”website,whichpostedpicturesandinformationregardingnumerousEritreansheldbyEthiopia .InEritrea’s�iew,theinformationonthewebsiteregardingmanyindi�iduals(age,placeofinitialdetention,descriptionsofsupposedmilitaryunitsandthelike)showedthattheywereci�iliansandnotlegitimateprisonersofwar .
2. Ethiopia’s Response
370 . Ethiopiaresponded,inter alia,thatEritreaimproperlyconflateditsdetentionclaimsand,indoingso,failedtorespectimportantdistinctionsdrawnbytheCommissionandthenarrowscopeofitsliabilityAwards .Ethio-piadisputedthenumbersofpersonsdetained,contendingthatEritrea’sreli-anceontheStateDepartment’ssolitaryreferenceto“hundredsofothers”indetentionatpolicestationswasinsufficienttosupportaclaimforcompensa-tionin�ol�ingeighthundredpeople .Ethiopiaarguedthatthe“indi�idualizede�idence”ofPOWreportsandliabilityphasewitnessdeclarationsEritreausedtocorroborateitsclaimartificiallyinflatedthenumbersactuallydetained .ItalsocontendedthatthelargeamountsEritreaclaimedascompensationwereunwarrantedandunsupportedbye�idence .
616 ERITREA/ETHIOPIA
3. The Commission’s Conclusions
371 . TheCommission’sliabilityfindingsaddressedtwodistinctgroupsofci�ilianswhomEthiopiaheldandtreatedasci�ilians .Thefirstcomprisedci�iliansdetainedinprisonsandjailsonsecuritychargesunderunacceptablyharshconditions .TheCommission’sPartialAwardindicatedthatthenumbersaffectedwerenotclear,butitnotedtheICRC’sreportthatithadregistered664ci�iliandetaineesandtheStateDepartmentreport,referredtoabo�e,that1,200werebeingheld .Thesecondgroupcomprisedotherci�iliansheldinotherlocationswithoutapparentjustification,againunderunacceptablyharshconditions .Astothisgroup,theCommissionnotedmultipleaccountsofci�il-iansheldasPOWsorinfacilitiesalongsidePOWs .Howe�er,theCommissiondidnotdeterminehowmanypersonsfellwithinthereachofitsfinding .
372 . Analysis of the claim was complicated because some ci�ilianscapturedbyEthiopianmilitary forceswereheld in thesamebarracksandcampsasprisonersofwar,andweretreatedbyEthiopiainallotherrespectsasPOWs .TheICRCapparentlyregisteredthemasprisonersofwar,andtheywereincludedamongthosereleasedwhenEthiopiareleasedthePOWs .Therecorddidnotindicatewhyorhowfrequentlythisoccurred .Theaccountsofsomeci�ilianswhowereheldasPOWssuggestedthatEthiopiaregardedtheirpastmilitaryser�iceasjustificationtoholdthemascapturedcombatants .Inothercases,Ethiopia’sreasonswerenote�ident .
373 . Theliabilityphasetestimonyindicatedthatmanyci�iliandetain-eeswereheldinlocationswherePOWswerealsoheld .Therewereaccountsofci�iliansheldatFiche,thenmo�edtoBlateande�entuallytoDedessa .Se�-eralwitnessestestifiedthattheci�iliandetaineeswerekeptseparate,althoughsomeofthemwererequiredtoworkincaringforprisonersofwar .
374 . Inanycase,alloftheci�ilianswhowereheldasPOWswereinclud-edamongtheapproximately2,600personsco�eredintheCommission’sawardofcompensationforprisonersofwarinSectionVI .Fabo�e .Indeterminingthatawardofcompensation,theCommissionwasmindfulofandtookintoaccounttheunlawfulnessofEthiopia’sdetentionofci�iliansasprisonersofwar .TheCommissiondoesnotincludethesepersonsasecondtimeinassess-ingcompensationinthecurrentclaim .
375 . Thedamagesphasedidnotgreatlyincreasethea�ailableinforma-tiononthenumberofci�iliansEthiopiaimprisonedordetained .Howe�er,takingtherecordasawhole,theCommissionfindsthetotalof1,200ci�iliansreportedbyAmnestyInternationalandtheStateDepartmentintheirrespec-ti�e2000reportsonhumanrightsissuestobebothcredibleandthebesta�ail-ablee�idenceofthetotalnumberaffected .ThisfigurewaslargelycorroboratedbythewitnessdeclarationsofferedbyEritreaattheliabilityphase,inwhichbothdetainedci�iliansandPOWstestifiedthatci�iliansweredetainedat�ari-ousPOWcamps .TheliabilityphasedeclarationsofferedbyEritreaasproofoffurtherdamagesdidnotpro�ideabasisforahighernumber .
partxvii—FinalAWARD eritrea’sdamagesclaims 617
376 . Basedonthetotalityofe�idence,theCommissionawardsEritreacompensationofUS$2,600,000inrespectofEritreanci�ilianswhowereheldonsecuritycharges,orforunknownreasons,underharshandunacceptableconditions .
J. diplomatic Claim
1. The Commission’s Liability Findings
377 . EritreaandEthiopiaeachfiledextensi�eclaimsforinjuriessus-tainedbyitsdiplomaticmissionandconsularpostandpersonnelasaresultoftheother’salleged�iolationsoftheinternationallawofdiplomaticandcon-sularrelations .80
378 . In its Partial Awards in the Diplomatic Claims, the Commis-sionnotedtheParties’commendabledecisionsnottose�erdiplomatictiesthroughoutthearmedconflict,“despiteuna�oidablefrictionande�engreatpersonalriskfordiplomatsandstaff .”Furthernotingthat“thisunusualsitu-ationhascreatedunusualchallengesfortheapplicationofdiplomaticlaw,”theCommission,inassessingliability,lookedtothe“foundationalprincipleofdiplomaticreciprocity”andappliedthecriticalstandardof“theimpactofthee�entscomplainedaboutonthefunctioningofthediplomaticmission .”Onthisbasis,theCommissionmadelimitedfindingsofliabilityagainsteachPartyfor“serious�iolationsimpedingtheeffecti�efunctioningofthediplo-maticmission .”
379 . InthecaseofEritrea,theCommissionfoundEthiopialiablefortwosuchserious�iolations:
1 . . . .for�iolatingArticles36and29oftheViennaCon�entiononDip-lomaticRelationsinthecourseofthedepartureofEritreandiplomaticper-sonnelfromtheAddisAbabaairportinMay1998byattemptingtosearchtheAmbassador’sperson,searchinghishandluggage,confiscatingpapersfromhisbriefcaseandinterferingwithhischeckedluggage,andalsobysearchingotherdepartingdiplomatsandtheirluggage,withoutregardtotheirdiplomaticimmunities;
2 . . . . for�iolatingArticle22of theViennaCon�entiononDiplomat-ic Relations by entering, ransacking, searching and seizing the EritreanEmbassyResidence,aswellasofficial�ehiclesandotherproperty,withoutEritrea’sconsent .81
80 PartialAward,DiplomaticClaim,Eritrea’sClaim20BetweentheStateofEritreaandtheFederalDemocraticRepublicofEthiopia(December19,2005)[hereinafterPartialAwardinEritrea’sDiplomaticClaim];PartialAward,Ethiopia’sClaim8BetweentheFed-eralDemocraticRepublicofEthiopiaandtheStateofEritrea(December19,2005) .
81 PartialAwardinEritrea’sDiplomaticClaim,dispositif,SectionIV .D .1&2 .
618 ERITREA/ETHIOPIA
2. Eritrea’s Claim
380 . InitsDamagesGroupTwoMemorial,Eritrealargelyrepeatedthebackgroundandargumentsunderlyingitsdiplomaticliabilityclaims .Ase�i-dence,Eritreapresentedsixnewwitnessstatementssupplementingthosefiledearlier .Se�eralofthedepartingdiplomatsrecountedsearchesandseizuresofpropertynotonlyattheairportbutalsoattheirhomes,andemphasizedemotionaltraumaandlossofpersonalitemssuchasfamilyphotographs .Inasecondwitnessstatement,Eritrea’sAmbassadordescribedtheResidenceandhisbelongings,andestimatedthe�alueoflostofficialandpersonalproperty,withoutsupportingin�entoriesorotherdocumentation .
381 . Eritreaconcludedtherele�antchapterofitsDamagesGroupTwoMemorialwithaclaimforunspecifiedmonetarydamagesforEthiopian�iola-tionsthatwere“systematic,deliberate,andentirelywithoute�enapretenseoflegality .”Thechartentitled“DiplomaticCalculations”attheendoftheMemo-rialreflectsthatEritreasoughttotalmonetarycompensationofUS$2,611,500and77,500birr .Inrelationtotheunlawfulentering,ransacking,searchingandseizureoftheEmbassyResidencecompound,EritreasoughtUS$237,000forfurnitureandappliances(US$200,000forthemainResidence,US$25,000fortheguesthouse,andUS$12,000fortheser�antsquarters);US$50,000forthree�ehicles;US$20,000forequipmentpertainingtoEmbassyfunction;US$95,000fortheAmbassador’sartcollection;US$17,600fortheAmbassador’spersonalitems(US$17,000toUS$20,000forhiswardrobe);andUS$1,000,000forthe“premeditated”andongoingseizure .Inrelationtotheairportsearchandsei-zureoftheAmbassador,EritreasoughtUS$100,000forsearchofhisperson;US$5,000forsearchofhisluggage;US$43,800forseizureofhisfi�echeckedsuitcases;andUS$20,000forcashandUS$500forpersonalitemsseizedfromhishandluggage .Finally,fortheunlawfulsearchandseizureofsixteennameddiplomats,apparentlynotlimitedtoe�entsattheairportduringtheirdepar-ture,Eritreasoughtfixed-sumsofUS$50,000forthesearchandseizureofeachpersonand$5,000forthesearchandseizureofeachperson’sluggage,aswellaseitherthefixed-sumofUS$10,000oraspecificamountforseizedproperty .
3. Ethiopia’s Position
382 . Consistent with its own Diplomatic Claim, Ethiopia took thepositionthatsatisfactionisasufficientformofreparationforEritrea’sclaim,because theharmtodiplomatic representati�esandpropertywas suffereddirectlybyEritreaoritsofficialsand,incomparisontotheharmsaddressedintheCi�iliansClaims,wasrelati�elyminor .Inthealternati�e,EthiopiaarguedthatthequantumsoughtbyEritreawasunwarrantedanddisproportionatetotheCommission’stwolimitedfindingsofliability .Ethiopiaobjectedinpar-ticulartoEritrea’sclaimsforUS$1,000,000forthe“premeditated”seizureoftheEmbassyResidenceandforhighfixed-sumdamagesforeachdeparting
partxvii—FinalAWARD eritrea’sdamagesclaims 619
diplomat, the latterbeingbasedonalleged“physicalabuseanddetention”rather thanontheCommission’s limitedfindingsas to theattemptedandactualsearchesofthediplomats .
383 . AttheMay2008hearing,arepresentati�eofEthiopiaexpressedregretforthe�iolationsofEritrea’sdiplomaticimmunitiesfoundbytheCom-mission .82
4. The Commission’s Conclusions
384 . AswithalloftheParties’damagesclaims,theCommissionhascarefullyre�iewedthesubmissionsandsupportinge�idenceinEritrea’sDip-lomaticClaim .Differentelementsoftheclaimwarrantdifferentawardsofreparation .
385 . Turningfirsttotheclaimsforthewrongfulsearchesofdepartingdiplomaticpersonnel(otherthantheAmbassador)attheairport,theCom-missionfindsthatthepro�endamagewasnon-material .ItbearsreiteratingthattheCommissiondidnotfindEthiopialiableforseizingpropertyofthesediplomats in thecourseof thewrongfulsearchesat theairportorat theirhomesbeforetheirdeparture .Withoutunderminingtheseriousnessofanysuchsearches,whichtheCommissiondescribedas“blatantbreaches”ofdip-lomaticimmunityinthePartialAward,83thefactremainsthattherewaslittlee�idenceoftheexactnumberorscopeofsuchsearches .Althoughthee�idencereferredtointerferencewithsomese�enteentothirtydepartingdiplomats,Eritreapresented�ery fewwitnessstatementswithdetailsas towhathap-penedattheairportandwhatpropertywasseized .Eritreamadenoattempttojustifythefixed-sumsclaimed,which—atsomeUS$65,000perdepartingdiplomat—farexceedthefixed-sumsclaimedformanycategoriesofinjuredci�ilians .
386 . AsrecognizedbytheInternationalCourtofJusticeintheCorfu Channel case,whereinjuryisnon-materialandhencenotcompensablebyrestitutionorcompensation,theappropriateformofreparationforaState’swrongfulactissatisfaction .84Intheinstantcase,gi�enEthiopia’sseriousbutnon-materialinterferencewithanuncertainnumberofdepartingEritrean
82 TranscriptoftheEritrea-EthiopiaClaimsCommissionHearingsofMay2008,PeacePalace,TheHague,atpp .44–47(May22,2008) .
83 PartialAwardinEritrea’sDiplomaticClaim,para .36 .84 CorfuChannelCase(U .K .� .Alb .),Merits,1949I .C .JREP .p .4,atp .35 .See also
RainbowWarriorCase(N .Z .� .Fr .),Award,Apr .1990,20ReportsofInternationalArbitralAwardsp .215,para .122 .
620 ERITREA/ETHIOPIA
diplomats,theappropriatereliefissatisfactionintheformofadeclarationofwrongfulness .85
387 . The Commission turns next to the claims based on Ethiopia’streatmentoftheAmbassadorashedepartedEthiopiafromtheairport .TheattemptedsearchoftheAmbassador’sperson,fortunatelypre�entedbyhim,wasanextremelyserious�iolationofhisdiplomatic immunity .Almostasseriousa�iolationwasEthiopia’sactualsearchofandseizureofpapersandpersonalpropertyfromhisbriefcaseandhandluggage .Reliefintheformofsatisfaction,specificallyintheformofastrongdeclarationofwrongfulness,iswarranted .
388 . Monetaryrelief,howe�er,isnotequallywarranted .AlthoughtheEritreanAmbassador’stestimonywashelpful,theCommissionwouldexpectclaimsfortheseizureofUS$20,000worthofEritreango�ernmentcashandUS$500forpersonalitemsinhishandluggagetobesupportedwithdocumen-tationgoingbeyondhisownstatements .NoristheCommissionabletoawardmonetarydamagesfortheUS$40,000claimfortheAmbassador’sfi�echeckedsuitcases,whichdidnotappearathisdestination .E�eniftheCommissionwereable toassumeintheabsenceofdirecte�idencethatEthiopiaseizedthesuitcases,Eritreaagaindidnotpro�ideanycorroboratingdocumentationsupportingtheAmbassador’sestimated�aluationofhispersonalwardrobeandjewelry .
389 . The Commission turns to the last and most serious �iolation,theEmbassyResidenceclaim .Ethiopiahasappropriatelyconceded,withitsexpressionofregretatthehearing,thatEritreaisentitledtosatisfactionintheformofadeclarationoftheseriouswrongfulnessofEthiopia’sactionsinentering,ransacking,searchingandseizingEritrea’sEmbassyResidenceandseizingbothdiplomaticpropertyandtheAmbassador’spersonalproperty .
390 . ThemoredifficultquestioniswhetherEritreaisalsoentitledtomonetary compensation for these extremely serious �iolations of Eritrea’sdiplomaticpremisesandproperty .Ontheonehand,theCommissionfindsthatthequantume�idencepresentedissparse .OtherthantheAmbassador’stwowitnessstatements,Eritreapresentednoofficialorunofficialin�entoriesofeither thediplomaticorpri�ateproperty in theResidence;nopurchasereceipts;notestimonyotherthanafewgeneralstatementsinwitnessstate-mentssuchastheresidence“wasahugeplaceandthethingsinsidewere�eryexpensi�e”and“theAmbassador . . .hadagreattasteforartandagoodcol-lectionofantiquesandrelatedobjects .”Gi�enthenatureandmagnitudeoftheclaims,forexample,US$200,000worthofResidencefurnishingsinclud-ingimportedItalianandSwedishfurniture,andaUS$95,000pri�ateartcol-
85 ReportoftheInternationalLawCommissionontheWorkofitsFifty-ThirdSes-sion(theDraftArticlesonStateResponsibility),Apr .23-June1,2001andJuly2-Aug .10,2001,U .N .Doc .A/56/10,CommentarytoArticle37oftheInternationalLawCommis-sion’sDraftArticlesonStateResponsibility,2001,pp .105–107 .
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lection,theCommissionwouldexpectatleastinsurancein�entories .EritreamadenoattempttoexplainorjustifytheUS$1,000,000claimedfor“premedi-tated”seizureinadditiontoallegedactuallosses .Ontheotherhand,theCom-missionappreciatesthatsuchdocumentation(atleastinpart)couldha�ebeenlostwiththeseizureoftheEmbassyResidence .TheCommissionalsoacceptsthattheResidencecompound,whichconsistedofthreebuildings,wouldha�econtainedasuitablecomplementofgo�ernment-pro�idedfurniture,electron-ics,appliancesand�ehicles,aswellastheAmbassador’spersonalbelongings .Therewerese�eralsupportingwitnessstatementsastotheextent,ifnotthe�alue,ofthefurnishings,�ehiclesandotherpropertyintheEmbassyResi-dencecompound .
391 . On balance, weighing the extreme seriousness of the �iolationagainstthepaucityofthe�aluatione�idenceforsuchlargeclaims,theCom-missiondeterminestoawardEritreaUS$155,000,whichisapproximately50%ofthetotalamountofUS$307,000claimedforthecontentsofthethreebuild-ingsintheEmbassyResidencecompoundandthree�ehicles .
392 . To summarize, the Commission awards Eritrea US$155,000 inmonetarycompensation for�iolationofEritrea’sdiplomaticpremisesandpropertyand,asappropriatesatisfaction,reiteratesitsliabilityfindingsanddeclaresthatEthiopia�iolatedtheViennaCon�entiononDiplomaticRelationsby(1)attemptingtosearchtheAmbassador’sperson,searchinghishandlug-gage,confiscatingpapersfromhisbriefcaseandinterferingwithhischeckedluggage,andalsobysearchingotherdepartingdiplomatsandtheirluggage,inthecourseoftheirdeparturefromtheAddisAbabaairportinMay1998,withoutregardtotheirdiplomaticimmunities,and(2)entering,ransacking,searchingandseizingtheEritreanEmbassyResidence,aswellasofficial�ehi-clesandotherproperty,withoutEritrea’sconsent .
Viii. indiVidual Claims393 . UnliketherestofEritrea’sclaims,whichwereclaimsonbehalf
ofEritreaitself,sixclaims,numbered27–32,werefiledbyEritreaonbehalfofnamedindi�iduals .Consequently,it isnecessaryfortheCommissiontoinformthePartiesoftheamountsofanydamagesitawardswithrespecttoeachoftheseclaims .
394 . Asageneralmatter,itshouldberecalledthat,initsPartialAwardinEritrea’sCi�iliansClaims,theCommissiondeterminedthetypesofclaimsbasedoninjurytoEritreanci�iliansforwhichEthiopiawasliable,and,inparagraph160ofthatAwarditheld:
ThisPartialAwardappliestoalloftheclaimsbeforeitintheseproceedings,includingClaims27–32 .TheCommission’sfindingsofliabilityapplyfullytothoseclaimstotheextentindicatedbytheirparticularfacts .Theapplica-tionoftheCommission’sfindingstothefactsofeachoftheseclaimswillbeassessedinthefuturedamagesphaseoftheseproceedings .
622 ERITREA/ETHIOPIA
395 . Ha�ingexaminedthememorialsandsupportingdocumentationsubmittedbyEritreafordamagesinthesesixclaims,theCommissionmakesthefindingsbelow .
a. Claims 27 and 28, Hiwot nemariam and belay redda
396 . Thesetwoclaimsareconsideredtogether,astheyarebyhusbandandwifeandarebasedtoaconsiderableextentonpropertyjointlyownedbetweenthem .
397 . Theclaimof thehusband(Claim28),whoisnowdeceased, fordamagesfortheallegedlyunlawfuldepri�ationofhisEthiopiannationalitymust failbecausehewasadualnationalwhoclearlywas interrogatedanddeported by Ethiopian authorities for security reasons . Consequently, hisdepri�ationofEthiopiannationalitywasnotarbitraryandcontrarytointer-nationallaw .86Thesimilarclaimofthewife(Claim27),whowasalsoadualnational,wasslightlydifferentinthatsheassertedthat,abouttendaysafterherhusband’sdeportation,shewasarrestedbyse�enoreightEthiopianmili-taryofficersandtakentoakebeledetentioncenterwhereshewasdetainedandinterrogatedaboutherallegedin�ol�ementwiththeEritreango�ernmentand,afteraboutthreedays,wasdeportedtoEritreabybus,alongwithse�-entyothers .AlthoughnotassertedbyEritrea,thosedifferentcircumstancesmightindicatethatshewasdeportedbylocalauthorities,ratherthanbytheEthiopiango�ernmentandwithoutha�ingbeenfounddeportableforsecurityreasons,inwhiche�enttheresultingdepri�ationofherEthiopiannationalitywouldha�ebeenarbitraryandunlawfulpursuanttotheCommission’sear-lierholding .87Howe�er,thein�ol�ementofmilitaryofficers,theinterrogationaboutsecurityissues,andtheuseoffifteenbusesfordeportationwerefactsconsistentwiththein�ol�ementoftheEthiopiango�ernmentanditsscreen-ingprocess .Herclaimforarbitrarydepri�ationofherEthiopiannationalitythereforefailsforlackofproof .
398 . TheirclaimsfordamagesfortheirallegedlyunlawfulexpulsionfromEthiopiafailforthesamereason .88
399 . Theirclaimsfordamagesforunlawfulconditionsoftheirdeten-tionpendingexpulsionfailforthereasonsgi�eninthePartialAward .89
400 . InrecognitionthatthephysicalconditionsoftheirtransporttoEritreafailedtocomplywiththeinternationallawrequirementsofhumaneandsafetreatment,eachClaimantisawardedUS$100 .
86 PartialAwardinEritrea’sCi�iliansClaims,para .72 .87 Id.,para .78 .88 Id.,para .82 .89 Id.,para .110 .
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401 . Theirclaimsfordamagesforlackofaccesstotheirbankaccountsaftertheendofthewararemeritorious .While,as indicatedinthePartialAward,90Statesin�ol�edinarmedconflictha�etherighttofreezeenemyassetswithintheirjurisdictionandpre�enttheirtransfertoanenemy,itremainstheirobligation,asindicatedinthatPartialAward,91toprotectsuchassetsforreturntotheirownersorotheragreeddisposition .Theseclaimantssubmittede�idenceoftheexistenceofsubstantialbankaccountssubsequenttotheendofthewarinDecember2000,aswellase�idenceofunsuccessful,post-warrequeststodrawonthoseaccounts .Thelatesttotalofthoseaccountsine�i-denceis455,322 .93birr,whichequalsUS$56,915atan8:1exchangerate .In�iewofEthiopia’sfailuretopermittheseclaimantstowithdrawthatamount,theCommissionawardsdamagesintheamountofUS$56,915toClaimants27and28jointly .
402 . Claimant28’sclaimfordamagesrelatingtothelossofhisin�est-mentintheHornInternationalBank,likeallsuchclaims,isdismissed .92
403 . Claimant28’sclaimfordamagesforfamilyseparationisdismissedforfailureofproof .93
404 . Claimant28’sdamageclaimwithrespect tohispensionisdis-missedforthereasonsgi�enintheCommission’sFinalAwardinEritrea’sPensionClaims .
405 . WithrespecttotheclaimsofthesetwoClaimantsfordamagesfortheunlawfuldepri�ationoftheirotherproperties,thee�idenceindicatedthatEthiopiauseditstaxcollectionprocessesinarbitrarywaysthatunlawfullycausedthelossoftheClaimants’drycleaningandlaundrybusiness .Conse-quently,Ethiopiaisliableforthatloss .94TheClaimantsassertedthatthe�alueofthatbusinesspropertywastwomillionbirr,orapproximatelyUS$250,000atan8:1exchangerate .TheCommissionfacestheproblemthatthis�aluation,likealloftheClaimants’property�aluations,wassubjecti�eandwasmadesubsequenttotheirexpulsion .Ne�ertheless,inlightofthee�idenceasawhole,theCommissioniscon�incedthattheClaimants’drycleaningandlaundrybusinesswasworthatleast50%ofthesubjecti�eestimate .Consequently,theCommissionawardscompensationintheamountofUS$125,000fordepri�a-tionofbusinesspropertytoClaimants27and28jointly .
406 . TheClaimants’otherpropertydamageclaimswereforpersonalproperty, includinga residence,householdgoodsand twomotor�ehicles,whichtheyestimatedhadatotal�alueof2,200,000birr,orapproximatelyUS$275,000 .Therewasadequatee�idenceoftheexistenceofthesepropertiesand,inlightofthee�idenceasawhole,theCommissioniscon�incedthat
90 Id.,para .146 .91 Id.,paras .151&152 .92 Id.,para .150 .93 Id.,para .157 .94 Id.,para .144anddispositif,SectionXIII .E .13 .
624 ERITREA/ETHIOPIA
thesepropertieswereworthatleast50%ofthatsubjecti�eestimate .Conse-quently,theCommissionawardscompensationintheamountofUS$137,500forlossofotherpersonalpropertytoClaimants27and28jointly .
407 . In total, the Commission awards Claimants 27 and 28US$319,615 .
b. Claim 29, sertzu Gebre meskel408 . LikeClaimants27and28,Claimant29wasadualnationalwho
losthisEthiopiannationalityandwasexpelledtoEritreaforsecurityreasonspursuanttotheSIRAAsecurityprocess .UnlikeClaimant28,hiswifeisnotaclaimant,althoughheassertedthatshewasaco-ownerofsomeoftheprop-ertiesforwhichheclaimedandthatherclaimsshouldbeincludedwithhis .Howe�er,theStatementofClaim,whilesummarizinglossessufferedbytheClaimantandhiswife,explicitlynamedhimasthesoleclaimant .Inthosecircumstances,claimsbyhiswifecannotbeaddressedaspartofthisindi-�idualclaim .
409 . Claimant29’sclaimsfordamagesfortheallegedlyunlawfuldep-ri�ationofhisEthiopiannationalityandexpulsionfromEthiopiafailforthesamereasonsasthoseclaimsbyClaimants27and28 .
410 . Claimant29’sclaimfordamagesforunlawfulconditionsofdeten-tionpendingexpulsionfailsforthesamereasonsasthoseclaimsbyClaimants27and28 .
411 . Claimant29’sclaimfordamagesforunlawfulconditionsoftrans-portduringhisexpulsionfailsbecausethee�idenceindicatedthat,whilehefeltcrampedduringthreedaysofbustra�el,hespentonenightinahoteland,ingeneral,appearstoha�ehadbettertransportconditionsthanmostexpellees .
412 . Claimant29’sclaimfordamagesforinaccessiblebankaccountsfailsbecausethee�idenceshowedthatallwereaccountsheldbyhiswife .Thee�idenceandsubmissionsdidnotaddressorestablishwhethertheClaimantmightha�eanyrighttoaccessheraccountsunderEthiopianlaw .
413 . Claimant29’sclaimforlostin�estmentsintheHornInternationalBankfailsforthesamereasonsasthoseclaimsbyClaimants27and28 .
414 . Inseekingdamagesforlostproperty,Claimant29submittede�i-dencethat,priortohisexpulsion,hehadbeentheGeneralManagerofNileConstructionCo .inEthiopia,andheassertedthathewasthemajorityownerofthatcompanyatthetimeofhisexpulsion .Hiswifeassertedthatshewasaminorityownerofthecompanyanditsfinancialmanager .Claimant29indi-catedthatanotherrelati�e,whomhedidnotname,owned“afewshares .”Heestimatedthe�alueoftheassetsofNileConstructionCo .atthetimeofhisexpulsionasapproximatelyUS$7 .8million,withroughlyone-thirdofthattotalbeingforequipmentandmachinery,one-thirdforimmo�ableassets,andone-thirdforaccountsrecei�able .Insupportofthisclaim,hesubmittedtrans-
partxvii—FinalAWARD eritrea’sdamagesclaims 625
lateddocumentslistingtheequipmentownedbyNileConstructionCo .anddocumentsindicatingcontractualbusinesswithanEthiopianhospital .Se�eralotherdocumentswerealsosubmittedrele�anttose�eralothercompaniesthatClaimant29assertedwereowned,inwholeorinpart,byhimandhiswife .
415 . Othere�idencefurnishedbyClaimant29indicatedthatthehead-quartersofNileConstructionCo .subsequentlyweretakeno�erbyanEthio-pianbankthathadmadealoantothecompany,thatthebuildinghadbeen�aluedatapproximatelyone-thirdofthe�alueascribedtoimmo�ableprop-ertiesbyClaimant29,andthatthebalanceofthatnew�aluelesstheunpaidbalanceoftheloanhadbeenputintoabankaccountintheClaimant’sname,whichheassertedheisunabletoaccess .ClaimsforsuchrestrictedaccountsweredismissedbytheCommissioninthePartialAward .95
416 . WhileClaimant29pro�idedmoree�idencethantheotherindi�id-ualclaimantsastoboththenatureandthe�aluesofpropertyleftinEthiopia,thefactremainsthatthe�aluesassertedwereproposedsolelybytheClaimanthimself .Howe�er,bylistingtheassetsofNileConstructionCo .,theClaimantdidshowthatitwasasubstantialandprofitablebusiness .Heestimatedthe�alueofthatcompanyatnearly55millionbirr .Healsoclaimedforhisresi-denceandhouseholdgoods,whichheestimatedtobeworth2,750,000birr .
417 . TheClaimantfailedtopro�etheextentofhisownershipinterestsinalloftheclaimedproperties .Heappearedtoclaimforwhate�erwasownedbyeitherhiswifeorhimself .Hecannotdothat,ashiswife,whoapparentlyhandledthefinancesforherhusband,isnotaclaimantonwhosebehalfEritreahaspresentedaclaim .Anyclaimsforhiswifeoranyoneelse,iftheyotherwisemeetthejurisdictionalrequirements,maybeconsideredclaimsbyEritrea,butnotclaimsonbehalfofthisindi�idualClaimant .Howe�er,itappearedundisputedthattheClaimantownedatleasthalfofNileConstructionCo .,forwhichheshouldbeentitledtoclaim .Althoughlackingobjecti�ee�idenceofthat�alue,asidefromthelistofequipmentandsuppliespro�idedbytheClaimantandthebank’sindicationofalower�alue,theCommissionisne�er-thelesssatisfiedfromthee�idenceasawholethatitwasanentityofsubstantial�alue .Consequently,theCommissionawardsClaimant29compensationintheamountofUS$1,500,000forlossofhisinterestinNileConstructionCo .
418 . TheremainingclaimsfordamagesforpropertylossbyClaimant29aredismissedforfailureofproof .
C. Claim 30, fekadu andemeskal419 . LikeClaimant29,Claimant30wasadualnationalwholosthis
EthiopiannationalityandwasexpelledtoEritreaforsecurityreasonspursuanttotheSIRAAprocess .Also,likeClaimant29,hebroughtclaimsforpropertiesthatbelongedpartlytohiswife,whoisnotaclaimant .
95 Id.,paras .145&146 .
626 ERITREA/ETHIOPIA
420 . Claimant30’sclaimsfordamagesfortheallegedlyunlawfuldep-ri�ationofhisEthiopiannationalityandexpulsionfromEthiopiafailforthesamereasonsasthoseclaimsbyClaimant’s27and28 .
421 . Claimant30’sclaimfordamagesforunlawfulconditionsofdeten-tionpendingexpulsionfailsforthesamereasonsasthoseclaimsbyClaimants27and28 .
422 . Claimant30’sclaimfordamagesforunlawfulconditionsoftrans-portduringhisexpulsionfailsforfailureofproof .WhileEritreaallegedsuchconditions,Claimant30statedonlythathewasdeportedbybusandmadenocomplaintabouttheconditions .
423 . Claimant30’sclaimforlackofaccesstohisbankaccountsfailsbecausethee�idencesubmittedindicatedthataccesswaspermittedtothoseaccounts—andtheywereemptied—bya formeremployeeof theClaimantwhose claim to ha�e been authorized by the Claimant to such access wasacceptedinAugust1998bythebank .Claimant30didassertthathedidnotsigntheauthorizationforthatindi�idual,whichwasdatednearlytwomonthsafterhisexpulsionandacopyofwhichwaslatersenttohimbytheCom-mercialBankofEthiopia .TheCommission,howe�er,isnotinapositiontodeterminethe�alidityunderEthiopianlawofthatallegedauthorization,but,ifitwasin�alid,theClaimantwasthe�ictimofafraudforwhichEthiopiaisnotresponsiblehere .
424 . Claimant30’slostpropertyclaim,otherthanbankaccounts,co�-eredpropertiesjointlyownedwithhiswife,whichallegedlyincludeda�ideoshop,threephotoshops,twohouses,cars,musicalinstrumentsandhouseholdgoods,withatotalestimated�alueofUS$3,750,000–$4,000,000 .AsClaimant30’swifeisnotaclaimantand,astheextentofherownershipoftheclaimedpropertiesisunknown,theCommissionfacesdifficultyindeterminingwhatpercentageofanytotaldamageawardwouldproperlybeowedtotheClaim-ant .Greaterdifficulty,howe�er,arisesfromthealmostcompletelackofe�i-dencefromwhichactualdamagescanreasonablybeassessedbytheCommis-sion .Neitherthenetincome,ifany,actuallyobtainedfromthefourshops,northe�alueoftheirfurnishings,equipmentandsupplies,wasindicated,letalonesupportedbye�idence .WhethertheshopswererentedorownedbytheClaimantwasnotindicated .Instead,Claimant30simplyproposedasubjec-ti�eproperty�aluationofUS$750,000foreachof theshops .Similarly, the�aluesascribedtotheotherpropertieswerenotsupportedbye�idenceoftheiracquisitioncost,market�alueorotherindicia .
425 . WhiletheCommissiondoesnotdoubtthattheClaimant’slawfulexpulsionfromEthiopiacausedhimfinanciallosses,itcannotholdEthiopialiabletopayhimanarbitraryamountofdamagestheextentofwhichisutterlyunsupportedbye�idence .Consequently,Claimant30’sclaimforcompensa-tionforpropertylossisdismissedforfailureofproof .
partxvii—FinalAWARD eritrea’sdamagesclaims 627
d. Claim 31, mebrahtu Gebremedhin
426 . Claimant31’ssituationissomewhatdifferentfromtheotherindi-�idualclaimants inthatheandhiswife(whoisnotaclaimant)weredualnationalswhowerenotexpelled .TheywereU .S .permanentresidentswhowere�isitingEthiopia,andattheairportlea�ing�oluntarily,whentheyweredetainedand interrogatedandhad theirEthiopiannationality re�oked . ItseemsclearthattheyweretoldbyEthiopianofficialsthattheywouldha�ebeenarrestedandexpelledtoEritrealikeotherdualnationalswithsimilarbackgroundsiftheyhadnothadU .S .permanentresidencecardsandticketsforaflightoutofEthiopia .TheyhadtheirEthiopianpassportsconfiscated,andtheywereinformedthattheycouldnotreturntoEthiopia .
427 . Claimant31’sclaimsfordamagesfortheallegedlyunlawfuldep-ri�ationofhisEthiopiannationalityandexpulsionfromEthiopiafailsforthesamereasonsasthoseclaimsbyClaimants27and28 .
428 . Claimant31’sclaimforapproximately40,000birr,whichheassert-edwereintwobankaccounts,oneinhisnameandoneinhiswife’sname,werenotsupportedbydocumentarye�idence,buthisassertionsweresufficientlyconsistentandcredibletopermittheCommissiontoawardhimUS$2,500forhisbankaccountclaim .
429 . Withrespecttolossofpropertyotherthanbankaccounts,Claim-ant31claimed forahouse thathehadrentedout,onecarandhouseholdgoods,withanestimatedtotal�alueofUS$75,000 .Heacknowledgedthathiswifewasco-ownerofthehouseandcar .Thee�idenceshowedthatthehousewassealedandputupforsalebyEthiopia .TheClaimantacknowledgedthathedidnotknowwhetherthehousewassoldorwhathappenedtothecarandhouseholdeffects .Onthebasisofthee�idenceasawhole,theCommissioniscon�incedthatthesepropertieswereworthatleast50%ofthesubjecti�eestimate .Consequently,in�iewofhishalfownershipofthem,itawardstheClaimantUS$18,750 .
430 . Intotal,theCommissionawardsClaimant31US$21,250 .
e. Claim 32, mebrat Gebreamlak
431 . Claimant32claimedasasur�i�ingwidowonherownbehalfandonbehalfofherlatehusband,whodiedonOctober23,2001 .TheClaimantsubmittedanEritreanjudicialdecreedeclaringherrightsofinheritanceofhisproperties,whichtheCommissionaccepts .Howe�er,theCommissiondoesnotacceptherrighttoclaimforpersonalinjuriesallegedlysufferedbyherlatehusband .AsneitherEritreanorClaimant32assertedotherwise,theCommis-sionassumesthatsheandherhusbandweredualnationals .Hewasarrested,depri�edofhisEthiopiannationality,andexpelledfromEthiopiaforsecurityreasons .Claimant32andherchildrenleftEthiopiasoonthereafterbyairto
628 ERITREA/ETHIOPIA
Djibouti,becauseshehadbeentoldbyofficialsthatshewouldsoonbeexpelledlikeherhusbandandthatsheshouldsellherproperty .
432 . Claimant32’sclaimsfordamagesfortheallegedlyunlawfuldep-ri�ationofherEthiopiannationalityandexpulsionfromEthiopiafailbecausesheleftEthiopia�oluntarily,albeitafterthreatsofexpulsion .96
433 . The claim for damages for inaccessible bank accounts is meri-torious, although the e�idence was unclear as to the amounts in�ol�ed .TheCommission is satisfied that at least800,000birr is in threepersonalaccounts .Applyingan8:1exchangerate,theCommissionawardsClaimant32US$100,000forinaccessiblebankaccounts .
434 . Claimant32’slostpropertyclaim,otherthanforbankaccounts,co�eredtheassetsoftheFeruthInternationalTradingCompany,whichtheClaimantandherhusbande�identlyformedin1983,aswellascertainper-sonalproperty .Theystatedthat,together,theyowned100%ofFeruth,whichapparentlyimportedtruckpartsandwasoneofthebiggestexportersofci�et,aperfumefixingagent .Theyalsoclaimedpartialownershipsinse�eraloth-erEthiopiancompanies .Beforehedied,theClaimant’shusbandestimatedthe�alueoftheirassetsasfollows:Feruth,approximatelyUS$250,000;their45%interestinLionTra�elandTourSafaris,approximatelyUS$96,000;andotherproperty,approximatelyUS$45,000 .TheClaimantstatedthatshehadauthorizedanagentinEthiopiatoselloneoftheirtwocars,buthadnotheardwhetherthathadhappened .
435 . WhileitseemsclearthatClaimant32hadtherighttoclaimdam-ageswithrespecttoallpropertyinEthiopiaownedbyeitherherorherlatehusband,theCommissionisne�erthelessleftwiththeproblemthatthe�alua-tionswereallsubjecti�eonesmadebyherlatehusbandafterhisexpulsion .TheCommissionconcludesthatthee�idencewasinsufficienttojustifyanawardofdamageswithrespecttoallbutoneoftheseproperties .TheexceptionistheclaimforlossoftheassetsoftheFeruthInternationalTradingCompany,whichwaswholly-ownedbytheClaimantandherhusband .TheCommissioniscon�incedthattheassetsofthatcompanywereworthatleast50%ofthesubjecti�eestimate .Consequently,theCommissionawardsClaimant32com-pensationofUS$125,000forthelostinterestinthatcompany .
436 . Intotal,theCommissionawardsClaimant32US$225,000 .
96 Id.,paras .73,94&95 .
partxvii—FinalAWARD eritrea’sdamagesclaims 629
iX. aWardTheCommissionawardsEritreathefollowingcompensationforEthio-
pia’s�iolationsofthejus in bello:1 . US$13,500,000forlossesofresidentialandbusinesspropertyontheCen-
tralandWesternFrontsinSerha,Senafe,Teseney,Alighidir,Guluj,Tabal-dia,Gergef,Omhajer,BarentuandTokombia,andMolkiSub-Zoba;
2 . US$35,965,000fordamagetoanddestructionofbuildingsontheCentralandWesternFrontsinSerha,Senafe,Teseney,Alighidir,Guluj,Tabaldia,Gergef,Omhajer,BarentuandTokombia,andMolkiSub-Zoba;
3 . US$1,500,000inrespectofinjuriestoci�iliansduetolossofaccesstohealthcareonaccountofdamagetoordestructionofEritreanhospitalsandothermedicalfacilitiesandlossofmedicalsupplies;
4 . US$100,000fordamagetoculturalproperty,specificallyUS$50,000fordamagetotheStelaofMataraandUS$50,000fordamagetotheTseronaPatriotsCemetery;
5 . US$4,000,000formistreatmentofprisonersofwar;6 . US$2,000,000forfailingtopre�enttherapeofknownandunknown�ic-
timsinthetownsofSenafe,BarentuandTeseney;7 . US$1,550,000forforcibleexpulsionofthepopulationofAwgaro;8 . US$50,000inrespectoftheunknown,butapparentlysmall,numberof
dualEritrean-Ethiopiannationalswhowerearbitrarilydepri�edoftheirEthiopiannationalitywhilepresentinthirdcountries;
9 . US$15,000,000inrespectofthewrongfulexpulsionofanunknown,butconsiderable,numberofdualnationalsbylocalEthiopianauthorities;
10 . US$11,000,000forrecei�ing,caringforandresettlingruralEthiopiannationalswrongfullyexpelledfromEthiopia;
11 . US$2,000,000forfailuretopro�idehumaneandsafetreatmentforper-sonsbeingexpelledfromEthiopia;
12 . US$46,000,000forexpellees’lossesofpropertyonaccountofEthiopia’swrongfulactions;
13 . US$24,525,000forEthiopia’s failuretoreturnorpro�idecompensationafterthewarfor�ehiclesitrequisitionedfromnon-residentEritreans;
14 . US$1,500,000forotherpropertylossesofnon-residentEritreans;15 . US$2,600,000forimprisoningEritreanci�iliansonsecuritychargesor
detainingthemforunknownreasons,underharshandunacceptablecon-ditions;and
16 . US$155,000for�iolationofEritrea’sdiplomaticpremisesandproperty;
630 ERITREA/ETHIOPIA
17 . Asdeterminedattheliabilityphase,theCommissionconsidersitsfind-ingthatEthiopiaunlawfullydepri�eddualEritrean-EthiopiannationalsoftheirEthiopiannationalitytobeappropriatereparationforthe�iolation .
18 . Asdeterminedattheliabilityphase,theCommissionconsidersitsfind-ingthatEthiopiaunlawfullyinterferedwithEritrea’sdepartingdiplomatstobeappropriatereparationforthe�iolation .
19 . AllofEritrea’sotherclaimsonitsownbehalfaredismissed .20 . ForclaimsfiledbyEritreaonbehalfofnamedindi�iduals,theCommis-
sionawardsthefollowingamounts:a . US$319,615forHiwotNemariamandBelayRedda,forfailureto
pro�idehumaneandsafetreatmentintransportfromEthiopia,lackofaccesstobankaccounts,andunlawfuldepri�ationofproperty;
b . US$1,500,000forSertzuGebreMeskel,forunlawfuldepri�ationofproperty;
c . US$21,250forMebrahtuGebremedhin,forlackofaccesstobankac-countsandunlawfuldepri�ationofproperty;and
d .US$225,000forMebratGebreamlak,forlackofaccesstobankac-countsandunlawfuldepri�ationofproperty .
e . TheclaimofFekaduAndremeskalisdismissed .21 . Inaddition to theawardofsatisfaction toEritrea forallof theCom-
mission’s liabilityfindings, thetotalmonetarycompensationawardedtoEritreainrespectof itsownclaimsisUS$161,455,000 .Theamountawardedinrespectofclaimspresentedonbehalfofindi�idualclaimantsisUS$2,065,865 .Attheconclusionoftheselengthyproceedingsandtheissuanceofthis
FinalAward,andtheparallelFinalAwardinEthiopia’sclaimsagainstErit-rea,theCommissionreiteratesitsconfidencethatthePartieswillensurethatthecompensationawardedwillbepaidpromptly,andthatfundsrecei�edinrespectoftheirclaimswillbeusedtopro�iderelieftotheirci�ilianpopula-tionsinjuredinthewar .
[Signed]PresidentHansvanHoutte
[Signed]GeorgeH .Aldrich
[Signed]JohnR .Crook
[Signed]JamesC .N .Paul
[Signed]LucyReed