struggles lay ahead. Nearly four decades would pass before the United States would ratify the treaty, and fifty years would elapse before the international community would convict anyone for genocide.
Chapter 5 “A Most Lethal Pair of Foes”
Lemkin’s Lobby
Never in history had states even resolved to prevent atrocities. But enforcement was another matter entirely. Lemkin needed to make two things happen. First, twenty UN member states that had voted for the ban in the General Assembly had to ratify it domestically in order for the treaty to become official international law. And second, the United States, the world’s most powerful democracy, would have to take the lead in enforcing the genocide ban. In the absence of U.S. participation, the League of Nations had been impotent, and the sponsors of all new initiatives at the nascent UN were determined to involve the United States at every turn. “This treaty is like a ship carrying survivors,” Lemkin wrote to himself. “It cannot be permitted to sink.”1
When it came to tallying twenty domestic ratifications, Lemkin again became a one-man, one-globe, multilingual, singleissue lobbying machine. Sifting through Lemkin’s papers, one is awed by the quantity of correspondence he maintained. He sent letters out in English, French, Spanish, Hebrew, Italian, and German. Long before computers or photocopiers, he handcrafted each letter to suit the appropriate individual, organization, or country. Occasionally, Lemkin commandeered a student assistant from Yale Law School or a volunteer from one of the Jewish groups with which he periodically allied himself, but these helpers rarely lasted under the employ of such a stringent taskmaster. Lemkin used friends, friends of friends, and acquaintances of acquaintances to familiarize himself with a country. When he wanted to know which buttons to press in Uruguay, a country he had never visited, he sent an elaborate set of questions to a distant contact. He inquired into the status of its ratification drive and asked how it approved international treaties. He wrote to the leaders of the most influential political parties, the heads of the private women’s or civic groups, and the editors of prominent newspapers. He usually asked his contact to gauge the influence of the local Jewish community. He varied his pitch. If a country had not yet ratified the convention, he appealed for haste in doing so and often attached sample legislation from Denmark, an early implementer. If a country had experienced genocide in the past, he reminded its citizens of the human costs of allowing it. But if a country had committed genocide in the past, as Turkey had done, Lemkin was willing to keep the country’s atrocities out of the discussion, so as not to scare off a possible signatory.
Convention on the Prevention and Punishment of the Crime of Genocide
Approved and proposed for signature and ratification or accession by General Assembly resolution 260 A (III) of 9 December 1948 Entry into Force 12 January 1951, in Accordance with Article XIII
The Contracting Parties,
Having considered the declaration made by the General Assembly of the United Nations in its resolution 96 (I) dated 11 December 1946 that genocide is a crime under international law, contrary to the spirit and aims of the United Nations and condemned by the civilized world,
Recognizing that at all periods of history genocide has inflicted great losses on humanity, and
Being convinced that, in order to liberate mankind from such an odious scourge, international cooperation is required,
Hereby agree as hereinafter provided:
Article 1
The Contracting Parties confirm that genocide, whether committed in time of peace or in time of war, is a crime under international law which they undertake to prevent and to punish.
Article 2
In the present Convention, genocide means any of the following acts committed with intent to destroy, in whole or in part, a national, ethnical, racial or religious group, as such:
1 Killing members of the group;
2 Causing serious bodily or mental harm to members of the group;
3 Deliberately inflicting on the group conditions of life calculated to bring about its physical destruction in whole or in part;
4 Imposing measures intended to prevent births within the group;
5 Forcibly transferring children of the group to another group.
Article 3
The following acts shall be punishable:
1 Genocide;
2 Conspiracy to commit genocide;
3 Direct and public incitement to commit genocide;
4 Attempt to commit genocide;
5 Complicity in genocide.
Article 4
Persons committing genocide or any of the other acts enumerated in article III shall be punished, whether they are constitutionally responsible rulers, public officials or private individuals.
Article 5
The Contracting Parties undertake to enact, in accordance with their respective Constitutions, the necessary legislation to give effect to the provisions of the present Convention, and, in particular, to provide effective penalties for persons guilty of genocide or any of the other acts enumerated in article III.
Article 6
Persons charged with genocide or any of the other acts enumerated in article III shall be tried by a competent tribunal of the State in the territory of which the act was committed, or by such international penal tribunal as may have jurisdiction with respect to those Contracting Parties which shall have accepted its jurisdiction.
Article 7
Genocide and the other acts enumerated in article III shall not be considered aspolitical crimes for the purpose of extradition. The Contracting Parties pledge themselves in such cases to grant extradition in accordance with their laws and treaties in force.
Article 8
Any Contracting Party may call upon the competent organs of the United Nations to take such action under the Charter of the United Nations as they consider appropriate for the prevention and suppression of acts of genocide or any of the other acts enumerated in article III.
Article 9
Disputes between the Contracting Parties relating to the interpretation, application or fulfilment of the present Convention, including those relating to the responsibility of a State for genocide or for any of the other acts enumerated in article III, shall be submitted to the International Court of Justice at the request of any of the parties to the dispute.
Articles 1–9 of the UN Convention on the Prevention and Punishment of the Crime of Genocide.
On October 16, 1950, thanks largely to this behind-the-scenes prodding, the twentieth country ratified the genocide convention.2 Thus, seventeen years after Lemkin had first proposed it, the attempted destruction of national, ethnic, and religious groups became an international crime. He told reporters, “This is a day of triumph for mankind and the most beautiful day of my life.”3
The tougher challenge was the more important one: securing ratification