I doubt that you have read the several news stories published recently about Austria's refusal to extradite Kazakhstan's former ambassador in Vienna to face trial for an alleged kidnapping. An Austrian court last week ruled against extraditing Rakhat Aliyev, who was married to Kazakh President Nursultan Nazarbayev's daughter, because the Austrian court found that it could not guarantee him a fair trial. Aliyev has told Austrian authorities that he thinks his life would be in danger if he returned to Kazakhstan and that the case against him is politically motivated because he said he was considering running for president.
As Ambassador Aliyev now knows all too well, extradition is the surrender and transfer of an alleged fugitive from justice or a criminal by one state, nation, or authority to another. Under the Fourth Amendment in America's Bill of Rights, one U.S. state is obliged to extradite to another state a wanted fugitive. But what if you move "offshore" and make your home in another country.
How likely is it you'd be extradited to face tax or criminal charges in another country? Until now, the answer has been "highly unlikely" - unless you were wanted for a violent crime such as murder, kidnapping or rape. But if Big Brother governments have their way, the list of extraditable offenses will expand to include "tax" and "fiscal" offenses - as well as politically motivated extraditions. But protection for tax exiles and freedom seekers still can be found in a well established body of international law - if politics doesn't get in the way.
Governments jealously guard the right to govern extradition of criminal suspects from their own country. Treaties that govern official extradition with strict safeguards exist in most countries. However, most extraditions are done informally. For instance, in America and other nations an illegal immigrant isn't usually entitled to a hearing before being sent home. Immigration officials may arrest a "fugitive" working without a legal permit, then hand the accused over to police across the border or put him on a plane home.
There has been a lot of that sort of "informal" extradition in the U.S. news lately. In other "informal" extraditions, fugitives have been abducted from a foreign country and taken to another nation for trial and/or punishment. A famous example occurred in 1960, when Israeli agents kidnapped Adolf Eichmann from Argentina. He was returned to Israel to stand trial for Nazi war atrocities committed during World War II, convicted, and later executed.
Extradition by Kidnapping is Legal
Don't be too shocked, but the United States has used kidnapping as a judicially approved extradition method. In 1990, agents of the U.S. Drug Enforcement Agency (DEA) kidnapped Dr. Humberto Alvarez-Machain from his medical office in Guadalajara, Mexico to stand trial in Los Angeles for the alleged murder of DEA agent Enrique Camarena Salazar. U.S. District Judge Edward Rafeedie denounced the government's weak case and found the kidnapping violated the U.S.-Mexico Extradition Treaty. The judge concluded that Dr. Alvarez-Machain was abducted at gunpoint in Mexico by "paid agents" of the United States, tortured by his abductors and injected with mind-altering drugs. The Mexican attorney general demanded the extradition of two DEA agents on charges of kidnapping, but the United States ignored the demand. The abduction was widely criticized internationally.
In 1990, Judge Rafeedie dismissed the case against Dr. Alvarez. The government appealed, and in 1992, the Supreme Court reversed this decision. But by then, the doctor was home in Mexico. The Court ruled, in effect, that barring language specifically banning kidnapping in the relevant U.S. extradition treaty, it is legal to kidnap criminal suspects for extradition to the United States.
In 1989, in another "unofficial" extradition, U.S. armed forces invaded Panama, hundreds of Panamanians died in the military attack and the U.S. deposed dictator Manuel Noriega. When Noriega surrendered he was taken to Florida, where he was tried and convicted on federal drug and other criminal charges, in spite of defenses based in part on extradition law and treaties between the two nations.
This September Noriega will be released after 17 years in prison. In the last year the U.S. government has arrested business officials of two Internet gambling companies as they passed through U.S. airports in transit to other countries. In both cases the companies in question were located and operated outside the U.S., but the government claimed they violated American laws by allowing U.S. citizens to gamble using their systems.
The U.S. has also obtained the extradition from the United Kingdom of several business persons accused by the U.S. of involvement in the Enron scandal. This, in spite of the fact that the U.S.-U.K. treaty did not allow extradition for the alleged crimes and under British law the offenses were not criminal. The conclusion we can draw from all this is that if a government, especially the United States, wants one of its citizens badly enough, it will get him or her, no matter where they may live offshore.
"Formal" Extradition
Formal extradition, by comparison, is a complex process governed by the terms of bilateral treaties between the nations involved. Unless the host nation is willing to relinquish a fugitive, retrieving him can be impossible - unless the requesting government resorts to kidnapping or other the coercive methods I have described. Formal extradition begins when a diplomatic agent for the requesting nation asks the host nation to surrender the fugitive. Even if there is an extradition treaty between the two nations, the sanctuary nation will not always surrender the individual. The decision will depend on its interpretation of the treaties, as judged by its own courts, as in the recent case in Austria.
The legal principle of "specialty" requires that when extradition is granted, the requesting State may put the fugitive on trial only for those specific offenses on which the request was based. Of course, once fugitives are returned to the country that wants them, there is little a foreign government can do, except protest, if the person extradited is tried for additional crimes, or suffers punishment not permitted in the host country, especially capital punishment.
Another important principal is "dual criminality," which allows extradition only when the alleged acts of a fugitive are recognized as statutory crimes in both countries. Violations of this principle are a common basis for refusal of formal extradition requests.
MLATs
Extradition in many countries is augmented by a newer series of "Mutual Legal Assistance Treaties" (MLATs). These agreements promote cooperation in the exchange of information and evidence in criminal investigations. The U.S. network of MLATs is the world's largest. Using MLATs, U.S. prosecutors can request search warrants be served in foreign jurisdictions, freeze foreign-owned assets before trial and demand access to financial records located abroad. All these tactics "encourage" defendants to return "voluntarily" to the United States for trial.
Any "Safe Havens" Left?
To avoid extradition a fugitive can flee to a jurisdiction with no extradition treaties with the country that is in pursuit. Civil law countries may be protective, since many of them ban extradition of their own citizens. But don't count on the United States to be a safe haven. The U.S. government has the authority to arrest and detain a foreign citizen for extradition without an independent showing of "probable cause" in a U.S. court that the accused committed a crime abroad. All that's required is a statement from the requesting country merely alleging probable cause exists. On this basis, the U.S. government can hold a foreigner in jail for extradition.
What About You?
At the present time, it is relatively easy to avoid extradition unless you've committed a serious crime listed as grounds for extradition in the relevant extradition treaty, if one even exists. This list of extraditable crimes, however, is growing rapidly. The United States is at the forefront of this expansion movement. When it lacks solid grounds for its extradition demands, the U.S. government often uses as justification catch-all criminal "tax fraud" or "mail/wire fraud" provisions of its extradition treaties. More recently, "racketeering" and "money laundering" are the crimes alleged. And "terrorism" has been added to the list.
A leading international tax consultant in Washington, D.C. told me (off the record, since he must deal with the IRS constantly) that most nations are reluctant to extradite anyone from their countries for alleged tax offenses. Foreign tax laws usually apply criminal penalties only to intentional tax fraud, such as false filings. Many countries treat failure to file as negligence rather than evasion or fraud, since their systems require filing of an estimated income statement. On that statement the government bases tax bills that are sent later.
If you're on the run from the police for crimes you actually committed, there are few safe havens. Most countries don't want to shelter known criminals. But often, the situation is more ambiguous. Perhaps you've been accused of a crime you didn't commit, the charges have been trumped-up or you merely believe that because of your political or economic status, like Kazakhstan's former ambassador in Vienna, you may be targeted for arrest, imprisonment and confiscation of your wealth.
In such situations, you may have little recourse but to relocate to a country without an extradition treaty with your home country, or one that excludes the particular crime or crimes of which you're accused.
For More Information...
* United Nations Model Treaty at LINK: http://www.unodc.org/pdf/model_law_extradition.pdf
* Source for U.S. treaties is the State Department's Treaties in Force series, LINK: http://www.state.gov/www/global/legal_affairs/tifindex.html
* U.K. extradition treaties, Index to Treaties published by Her Majesty's Stationary Office. LINK: http://www.hmso.gov.uk/