The Development and Evolution of the ECCC, 1997–2003

Gidley, Rebecca

doi:10.1007/978-3-030-04783-2_4

Rebecca Gidley⁵

Part of the book series: Palgrave Studies in the History of Genocide ((PSHG))

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Abstract

In this chapter I discuss the process that led to the creation and unique design of the Extraordinary Chambers in the Courts of Cambodia (ECCC), as well as the many delays in the process. After a 1997 letter sent by the Cambodian co-prime ministers requesting assistance and a UN Group of Experts report, the UN Secretariat and the Cambodian government negotiated a model that created a hybrid of national and international systems. The negotiations were fraught with distrust, misunderstandings, and the apportioning of blame. The dominant issue that pervaded these negotiations was the question of the relative power of the UN and the Cambodian government in controlling proceedings. Despite the extensive obstacles, in March 2003, the two sides reached an agreement to establish the ECCC.

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Notes

1.
Phnom Penh Domestic Service, Newspaper Blasts Tokyo Conference on Kampuchea, FBIS-APA-81-117, 16 September 1981; Phnom Penh SPK, Text of Hun Sen Interview in Moscow, FBIS-APA-84-073, 11 April 1984.
2.
Quoted in Tom Fawthrop and Helen Jarvis, Getting Away With Genocide? Elusive Justice and the Khmer Rouge Tribunal (Sydney: University of New South Wales Press, 2005), 103.
3.
Phnom Penh Samleng Pracheachon Kampuchea Radio Network, Hun Sen Calls for Trial of Khieu Samphan, FBIS-EAS-93-063, 4 April 1993.
4.
Ker Munthit, “Genocide Seminar Calls for ‘Commission of Truth’,” Phnom Penh Post, 25 August 1995.
5.
Phnom Penh National Radio of Cambodia Network, KR Censured for Choice to Continue War, FBIS-EAS-95-027, 9 February 1995.
6.
Craig Etcheson, After the Killing Fields: Lessons from the Cambodian Genocide (Westport: Praeger, 2005), 131–32.
7.
Anette Marcher, “Hammarberg: Impunity Cambodia’s Problem,” Phnom Penh Post, 29 October 1999; Beth Moorthy, “Hammarberg Defends his Track Record in Cambodia,” Phnom Penh Post, 25 December 1998.
8.
Office of the High Commissioner for Human Rights, “Situation of Human Rights in Cambodia: Commission of Human Rights Resolution 1997/49,” E/CN.4/RES/1997/49, 11 April 1997.
9.
David Chandler, “A Small, Muddled, Erratic, Frightened Man,” Phnom Penh Post, 27 June 1997.
10.
United Nations General Assembly, “Letter Dated 21 June 1997 from the First and Second Prime Ministers of Cambodian Addressed to the Secretary-General,” A/51/930, 24 June 1997.
11.
Ibid.
12.
Balakrishnan Rajagopal, “The Pragmatics of Prosecuting the Khmer Rouge,” Yearbook of International Humanitarian Law 1 (1998): 191, 96.
13.
Steve Heder, “Politics, Diplomacy, and Accountability in Cambodia: Severely Limiting Personal Jurisdiction in Prosecution of Perpetrators of Crimes against Humanity,” in Historical Justice in International Perspective: How Societies are Trying to Right the Wrongs of the Past, ed. Manfred Berg and Bernd Schaefer (Washington, D.C.: German Historical Institute, 2009), 196; David Chandler, “Will There Be a Trial for the Khmer Rouge?,” Ethics and International Affairs 14, no. 1 (2000): 80.
14.
Lao Mong Hay, interview by author, 28 March 2014, Phnom Penh.
15.
David Scheffer, All the Missing Souls: A Personal History of the War Crimes Tribunals (Princeton: Princeton University Press, 2012), 348–51.
16.
MacAlister Brown and Joseph Zasloff, Cambodia Confounds the Peacemakers 1979–1998 (Ithaca: Cornell University Press, 1998), 262.
17.
UN Centre for Human Rights, “Memorandum to the Royal Government of Cambodia: Evidence of Summary Executions, Torture, and Missing Persons Since 2–7 July 1997,” HR REC 13/97, 21 August 1997, 5.
18.
“UN Special Envoy for Human Rights in Cambodia Condemns Violence,” Agence France-Presse, 8 July 1997.
19.
Jason Barber and Huw Watkin, “Hun Sen Left Seatless at UN,” Phnom Penh Post, 26 September 1997.
20.
Laurinda Keys, “ASEAN Postpones Entry of Cambodia to Trade Group Following Coup,” Associated Press, 10 July 1997.
21.
Matthew Grainger, “Spinmeisters Ask for Progress on Arrests in Political Killings,” Phnom Penh Post, 13 November 1998.
22.
Huw Watkin, “Politics of Trying Pol Pot,” Phnom Penh Post, 10 October 1997.
23.
Robert Birsel, “Pardon for Cambodian Prince Revives Peace Hopes,” Reuters News, 22 March 1998; Reach Sambath, “Court Sentences Deposed Cambodian Premier to 30 Years in Absentia,” Agence France-Presse, 18 March 1998.
24.
Scheffer, All the Missing Souls, 343.
25.
Ibid., 354.
26.
Catherine Philp, “No Tribunal, Gov’t Insists, Until After July Elections,” Cambodia Daily, 8 May 1998.
27.
John D. Ciorciari, “History and Politics Behind the Khmer Rouge Trials,” in On Trial: The Khmer Rouge Accountability Process, ed. John D. Ciorciari and Anne Heindel (Phnom Penh: Documentation Center of Cambodia, 2009), 66.
28.
Jeff Smith, “US House Calls PM Criminal,” Cambodia Daily, 12 October 1998.
29.
“CPP Offers Blistering Defense Against US Senate Proposal,” Cambodia Daily, 28 October 1998.
30.
Nate Thayer, “Brother Enemy No. 1,” Phnom Penh Post, 15 August 1997.
31.
David Chandler, Brother Number One: A Political Biography of Pol Pot (Chiang Mai: Silkworm Books, 2000), 182.
32.
Scheffer, All the Missing Souls, 355–56.
33.
Nate Thayer, “Chance of a Lifetime,” Far Eastern Economic Review, 28 January 1999.
34.
Philip Short, Pol Pot: The History of a Nightmare (London: John Murray Publishers, 2004), 442.
35.
Quoted in Chandler, Brother Number One, 186.
36.
Wassana Nanuam, “Pol Pot – Brutal KR Chief Poisoned,” Bangkok Post, 19 March 2002; Sutin Wannabovorn, “Pol Pot May Have Been Poisoned – Thai Intelligence Service,” Reuters News, 19 April 1998; “Report: Ta Mok Says Pol Pot’s Death Was Execution,” Associated Press, 26 May 1999.
37.
Scheffer, All the Missing Souls, 360.
38.
“Cambodia Poll Sufficiently Free and Fair – Observers,” Reuters News, 27 July 1998.
39.
Jason Barber and Bou Saroeun, “Anlong Veng Death Rattle,” Phnom Penh Post, 10 April 1998.
40.
Kimsan Chantara, “Defectors Pledge ‘No More Fighting’,” Cambodia Daily, 8 December 1998; Nate Thayer, “End of Story?,” Far Eastern Economic Review, 17 December 1998.
41.
Thayer, “End of Story?,” 17 December 1998.
42.
David Brunnstrom, “Khmer Rouge Leaders were ‘Cornered’,” Reuters News, 26 December 1998.
43.
Kay Johnson and Khuy Sokhoeun, “Khieu Samphan, Nuon Chea Join Government at Pailin,” Cambodia Daily, 28 December 1998.
44.
Kay Johnson and Kimsan Chantara, “No Trial for Defectors, Hun Sen Asserts,” Cambodia Daily, 29 December 1998.
45.
Kay Kimsong, “‘Let Bygones Be Bygones,’ Say Former DK Leaders,” Cambodia Daily, 30 December 1998.
46.
Steve Heder, “Hun Sen and Genocide Trials in Cambodia: International Impacts, Impunity, and Justice,” in Cambodia Emerges from the Past: Eight Essays, ed. Judy Ledgerwood (DeKalb, Illinois: Southeast Asia Publications, Center for Southeast Asian Studies, Northern Illinois University, 2002), 199.
47.
Etcheson, After the Killing Fields, 152.
48.
“U.S. Says Khmer Rouge Leaders Must Face Justice,” Reuters News, 28 December 1998.
49.
Christine Chaumeau and Samreth Sopha, “‘Sorry, Very Sorry’ For So Much Death,” Phnom Penh Post, 8 January 1999; “Sihanouk Says Cannot Support New K. Rouge Amnesties,” Reuters, 30 December 1998.
50.
Declaration of Samdech Hun Sen, prime minister of the Royal Government of Cambodia and Commander-in-Chief of the Cambodian National Armed Forces, 1 January 1999, UN KRT documents. Part of the research material for this book includes approximately 5000 pages of copies of documents in the UN Office of Legal Affairs files on a Khmer Rouge tribunal from May 1998 to March 2006. Throughout this book I will reference these documents as “UN KRT documents”, and they are all held on file with the author.
51.
Ibid.
52.
Helen Jarvis, “PM Hun Sen: ‘First You Need to Catch the Fish’,” Phnom Penh Post, 19 February 1999.
53.
“Aide Memoire: An Analysis on Seeking a Formula for Bringing Top KR Leaders to Trial,” Cambodia New Vision, https://www.cnv.org.kh/cnv_html_pdf/cnv_14.PDF, January 1999.
54.
Statement of the Second National Congress of the Democratic National Unification Movement, 25 January 1999, UN KRT documents.
55.
Rebecca Gidley, “Betrayal and Hypocrisy: The United Nations, Cambodia, and the Khmer Rouge Tribunal,” in The United Nations and Genocide, ed. Deborah Mayersen (Basingstoke, Hampshire: Palgrave Macmillan, 2016), 54–76.
56.
Jarvis, “PM Hun Sen: ‘First You Need to Catch the Fish’,” 19 February 1999.
57.
Bou Saroeun and Peter Sainsbury, “The Last Arrest,” Phnom Penh Post, 19 March 1999; Peter Alford and Joe Cochrane, “US to Press for Khmer Rouge Trial,” The Australian, 4 March 1999.
58.
United Nations, “Report of the Group of Experts for Cambodia Established Pursuant to General Assembly Resolution 52/135,” S/53/850, 16 March 1999, 5.
59.
Ibid., 36–37.
60.
Ibid., 1–3.
61.
Letter from Hun Sen to Kofi Annan, 3 March 1999, UN KRT documents.
62.
United Nations General Assembly, “Aide-mémoire on the Report of the United Nations Group of Experts for Cambodia of 18 February 1999, Issued by the Government of Cambodia on 12 March 1999,” A/53/866, 18 March 1999.
63.
Ibid.
64.
Letter from Hun Sen to Kofi Annan, 3 March 1999, UN KRT documents.
65.
Beth Moorthy and Sarah Stephens, “PM Moots Possibility of Foreign Judges in KR Trial,” Phnom Penh Post, 13 April 1999.
66.
Beth Moorthy and Samreth Sopha, “KR Trial: “New Creature”,” Phnom Penh Post, 28 May 1999.
67.
“Samdech Hun Sen’s Letter on March 24, 1999 to HE Kofi A. Annan, Secretary-General of the United Nations,” Cambodia New Vision, https://www.cnv.org.kh/cnv_html_pdf/cnv_16.PDF, March 1999.
68.
Daphna Shraga, Note for the File: Trial of Khmer Rouge Leaders – UN Assistance, 7 June 1999, UN KRT documents.
69.
Scheffer, All the Missing Souls, 384.
70.
Ibid., 384–85.
71.
Ibid., 385.
72.
Letter from Ouch Borith to Ralph Zacklin, RC/MP/0140/99, 12 August 1999, UN KRT documents.
73.
“Trials for Khmer Rouge Ever More Remote,” Phnom Penh Post, 6 August 1999.
74.
Nic Dunlop, The Lost Executioner: A Story of the Khmer Rouge (London: Bloomsbury, 2005); Nic Dunlop and Nate Thayer, “Duch Confesses,” Far Eastern Economic Review, 6 May 1999; Ker Munthit, “Human Rights Groups Worry for Safety of Khmer Rouge Torturer,” Associated Press, 30 April 1999.
75.
Dunlop and Thayer, “Duch Confesses,” 6 May 1999.
76.
Comments on the Draft Law Concerning the Punishment of the Crime of Genocide and Crimes Against Humanity, Letter from Ralph Zacklin to Sok An, 27 August 1999, UN KRT documents.
77.
Fawthrop and Jarvis, Getting Away with Genocide, 160.
78.
Comments on the Draft Law Concerning the Punishment of the Crime of Genocide and Crimes Against Humanity, Letter from Ralph Zacklin to Sok An, 27 August 1999, UN KRT documents.
79.
Anette Marcher and Peter Sainsbury, “UN Seen Softening on Trial for Khmer Rouge,” Phnom Penh Post, 20 August 1999.
80.
“To Express Views and Will of Representatives of Civil Servants, Armed Forces, and People in Breakaway Areas from KR Leaders to Live in National Fold of Cambodian Concerning the Issue of KR Leaders Trial,” Letter from Representatives of Civil Servants and People in Breakaway Areas to H.E. Lakhan Mehrotra, Special UN Representative to Cambodia, 28 August 1999, UN KRT documents.
81.
Aide Memoire Meeting Between Samdech Hun Sen, prime minister of the Royal Government of Cambodia, and His Excellency Kofi Annan, Secretary General of the United Nations, 16 September 1999, UN KRT documents.
82.
Ibid.
83.
Scheffer, All the Missing Souls, 386–87.
84.
Ibid., 387.
85.
Ibid., 389–90.
86.
Draft Law on the Establishment of Extraordinary Formation in the Courts of Cambodia for the Prosecution of Crimes Committed During the Period of Democratic Kampuchea, Letter from Ouch Borith to Kofi Annan, RC/MP/0325/99, 20 December 1999, UN KRT documents.
87.
Non-Paper on Khmer Rouge Trial in Letter from Hans Corell to Ouch Borith, 5 January 2000, UN KRT documents.
88.
Chhay Sophal, “Cambodian Takes First Step to Khmer Rouge Justice,” Reuters, 6 January 2000.
89.
Sara Stephens, “Hun Sen’s Mixed Gift to Obuchi,” Phnom Penh Post, 21 January 2000.
90.
“Cambodian PM Stands Behind Pol Pot Lieutenant as Trial Debate Looms,” Agence France-Presse, 30 November 2000.
91.
Letter from Kofi Annan to Hun Sen, 8 February 2000, UN KRT documents.
92.
Letter from Hun Sen to Kofi Annan, 10 February 2000, UN KRT documents.
93.
Lor Chandara and Kelly McEvers, “Hun Sen Plans to Discuss Trial Plans With Annan,” Cambodia Daily, 11 February 2000.
94.
Anette Marcher, “PM-UNSG Talks Agree: More Talks,” Phnom Penh Post, 18 February 2000.
95.
“‘I Don’t Trust You,’ Cambodia’s Hun Sen Warns the UN,” Agence France-Presse, 6 March 2000.
96.
Letter from Hans Corell to Sok An, 7 July 2000, UN KRT documents.
97.
Ibid.
98.
Scheffer, All the Missing Souls, 393.
99.
Letter from Kofi Annan to Hun Sen, 8 February 2000, UN KRT documents.
100.
Scheffer, All the Missing Souls, 396–97.
101.
Letter from Hun Sen to Kofi Annan, 10 February 2000, UN KRT documents.
102.
Ibid.
103.
Transcripts of the Visiting U.S. Senator John Kerry, Cambodia, 28–29 April 2000, UN KRT documents.
104.
Scheffer, All the Missing Souls, 399.
105.
Ibid., 398.
106.
Fawthrop and Jarvis, Getting Away with Genocide, 186.
107.
Kelly McEvers and Pin Sisovann, “Way Clear for KR Draft Law, Envoy Says,” Cambodia Daily, 20 May 2000.
108.
Letter from Kofi Annan to Hun Sen, 8 February 2000, UN KRT documents.
109.
Thet Sambath and Kelly McEvers, “PM, UN Letters Indicate Formal Nod Near,” Cambodia Daily, 25 May 2000.
110.
Fawthrop and Jarvis, Getting Away with Genocide, 176.
111.
Letter from Hans Corell to Sok An, 7 July 2000, UN KRT documents; ibid.
112.
Ibid.
113.
Kelly McEvers, “Legislative Stalling Could Kill a Trial Deal,” Cambodia Daily, 5 July 2000.
114.
Brian Mockenhaupt, “Rights Groups Protest KR Tribunal Secrecy,” Cambodia Daily, 7 July 2000.
115.
Kelly McEvers and Thet Sambath, “KR Draft in Doubt as MPs Take Break,” Cambodia Daily, 24 August 2000.
116.
Kelly McEvers and Thet Sambath, “Tribunal Draft Revealing Cracks in CPP Unity,” Cambodia Daily, 18 August 2000.
117.
Anette Marcher and Vong Sokheng, “KR Tribunal Drowning in Smokescreens and Politics,” Phnom Penh Post, 15 September 2000.
118.
Fawthrop and Jarvis, Getting Away with Genocide, 178.
119.
“Cambodian King Favors Delay in Khmer Rouge Trial,” Kyodo News, 17 October 2000.
120.
Thet Sambath and Gina Chon, “Hun Sen Heaps Praise on Ieng Sary,” Cambodia Daily, 25 September 2000.
121.
Ham Samnang, “PM Wants KR Tribunal as Soon as Possible,” Cambodia Daily, 19 October 2000.
122.
Anette Marcher and Vong Sokheng, “Kerry Visit Raises KR Tribunal Hopes,” Phnom Penh Post, 24 November 2000.
123.
Pin Sisovann, “Assembly Begins Debate on KR Trial Law,” Cambodia Daily, 30 December 2000.
124.
Lor Chandara and Gina Chon, “KR Tribunal Law Approved,” Cambodia Daily, 3 January 2001; Fawthrop and Jarvis, Getting Away with Genocide, 181.
125.
Puy Kea, “U.N. Unhappy With Cambodia’s Proposed Treatment of Ieng Sary,” Kyodo News, 13 January 2001; Ana Nov, “Council Begins KR Discussion,” Cambodia Daily, 2 February 2001.
126.
Thet Sambath and Jody McPhillips, “Senate Comes of Age in Passing KR Draft,” Cambodia Daily, 17 January 2001.
127.
Matt McKinney, “Hun Sen: Trying Ieng Sary Would Mean War,” Cambodia Daily, 11 January 2001; Kay Kimsong and Gina Chon, “Senators Begin Approval of KR Draft Law,” Cambodia Daily, 12 January 2001.
128.
Kay Kimsong and Thet Sambath, “Senate Passes KR Draft Law Unanimously,” Cambodia Daily, 16 January 2001.
129.
Phelim Kyne and Vong Sokheng, “KR Law Moves But Fine Print Threatens,” Phnom Penh Post, 16 February 2001.
130.
Lor Chandara and Matt Reed, “Trial Delay Disappoints UN Officials,” Cambodia Daily, 26 February 2001; Fawthrop and Jarvis, Getting Away with Genocide, 182.
131.
Pin Sisovann and Bill Myers, “Hun Sen Rejects UN Advice on KR Draft Law,” Cambodia Daily, 24 February 2001.
132.
Fawthrop and Jarvis, Getting Away with Genocide, 183.
133.
“Hun Sen: KR Could Go on Trial by September,” Cambodia Daily, 4 May 2001.
134.
Thet Sambath, “Annan Decries KR Law Delay,” Cambodia Daily, 24 May 2001.
135.
Chris Decherd, “Cambodia PM Rejects UN Demand,” Associated Press, 29 June 2001.
136.
“Cambodia Ranariddh Adds to UN Khmer Rouge Trial Row,” Reuters, 30 June 2001.
137.
Samnang Ham and Matt Reed, “PM: Changes in KR Law Not Possible,” Cambodia Daily, 15 August 2001.
138.
Ibid.
139.
Letter from Hans Corell to Sok An, 10 October 2001, UN KRT documents.
140.
Letter from Sok An to Hans Corell, 23 November 2001, UN KRT documents.
141.
Letter from Hans Corell to Sok An, 10 October 2001, UN KRT documents; Letter from Hans Corell to Sok An, 11 January 2002, UN KRT documents.
142.
Letter from Hans Corell to Sok An, 11 January 2002, UN KRT documents.
143.
Letter from Sok An to Hans Corell, 22 January 2002, UN KRT documents.
144.
Fawthrop and Jarvis, Getting Away with Genocide, 189–90.
145.
Letter from Hans Corell to Sok An, 11 January 2002, UN KRT documents.
146.
Ibid.
147.
“Daily Press Briefing by the Office of the Spokesman for the Secretary-General”, 8 February 2002, reproduced in Ben Kiernan, “Cambodia and the United Nations – Legal Documents,” Critical Asian Studies 34, no. 4 (2002): 618.
148.
Matt Reed and Thet Sambath, “UN-Backed KR Trial Still A Possibility,” Cambodia Daily, 11 February 2002; Lor Chandara and Thet Sambath, “Lawmakers Seek Explanation for KR Delay,” Cambodia Daily, 22 February 2002; David Kihara and Phann Ana, “Indian Leader Vows Support for KR Trial,” Cambodia Daily, 10 April 2002.
149.
Lor Chandara and Thet Sambath, “Leaders Give Contrasting Views on UN,” Cambodia Daily, 12 February 2002.
150.
David Kihara and Thet Sambath, “Sok An: UN Gave Up Too Soon on Trial,” Cambodia Daily, 13 February 2002.
151.
“Annan Firm on UN Refusal to Back Khmer Rouge Trial,” Agence France-Presse, 13 March 2002.
152.
Statement from the Royal Government of Cambodia Task Force on the Khmer Rouge Trial, 15 March 2002, UN KRT documents.
153.
Molly Ball, “Sok An Says World Has Duty to Help in Trial of KR Leaders,” Cambodia Daily, 3 May 2002.
154.
“Cambodia’s Hun Sen Says UN Blocking Trial Plan,” Reuters, 14 May 2002.
155.
Ker Munthit, “Cambodia’s Leader Tells International Donors He’s Still Committed to Khmer Rouge Tribunal,” Associated Press, 20 June 2002.
156.
Fawthrop and Jarvis, Getting Away with Genocide, 193.
157.
Thet Sambath and Matt McKinney, “Hun Sen Suggests KR Law Amendments,” Cambodia Daily, 3 July 2002; Kevin Doyle, “Reported UN Snub on KR Shocks Gov’t,” Cambodia Daily, 5 July 2002.
158.
Matt McKinney and Lor Chandara, “Annan Letter Renews Hope For KR Talks,” Cambodia Daily, 22 August 2002.
159.
Fawthrop and Jarvis, Getting Away with Genocide, 195.
160.
United Nations General Assembly, “Resolution Adopted by the General Assembly: Khmer Rouge Trials,” A/RES/57/228, 18 December 2002; Bill Bainbridge, “UN Votes for KR Talks,” Phnom Penh Post, 20 December 2002.
161.
United Nations General Assembly, “Resolution Adopted by the General Assembly: Khmer Rouge Trials,” 18 December 2002.
162.
Ibid.
163.
Non-Paper: Khmer Rouge Trials, 3 January 2003, UN KRT documents.
164.
Fawthrop and Jarvis, Getting Away with Genocide, 199.
165.
Ibid.
166.
Letter from Hans Corell to Sok An, 17 January 2003, UN KRT documents; Letter from Hun Sen to Kofi Annan, 31 January 2003, UN KRT documents.
167.
Molly Ball and Thet Sambath, “UN Arriving Today for KR Trial Talks,” Cambodia Daily, 13 March 2003.
168.
Particular reference was made to the articles of this convention, which state that treaties are binding and that domestic laws may not be used to justify breaching a treaty. Fawthrop and Jarvis, Getting Away with Genocide, 202.
169.
Bill Bainbridge, “UN’s Corell Here For ‘Last Chance’ KR Talks,” Phnom Penh Post, 14 March 2003.
170.
Fawthrop and Jarvis, Getting Away with Genocide, 202.
171.
Bill Bainbridge and Vong Sokheng, “KR Tribunal: Corell Meets the Press,” Phnom Penh Post, 28 March 2003.
172.
Ibid.

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Australian National University, Canberra, ACT, Australia
Rebecca Gidley

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Gidley, R. (2019). The Development and Evolution of the ECCC, 1997–2003. In: Illiberal Transitional Justice and the Extraordinary Chambers in the Courts of Cambodia. Palgrave Studies in the History of Genocide. Palgrave Macmillan, Cham. https://doi.org/10.1007/978-3-030-04783-2_4

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DOI: https://doi.org/10.1007/978-3-030-04783-2_4
Published: 20 February 2019
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