By Carolyn A. Dubay, Associate Editor, International Judicial
Monitor and Assistant Professor of Law, Charlotte Law School
One of the many advances in the
last decades in improving international cooperation in private disputes has
been the crafting and implementation of The Hague Convention on the Civil
Aspects of International Child Abduction. Promulgated under the auspices of
The Hague Conference on Private International Law in 1980, the Convention was
ratified by the United States in 1988 and implemented through the International
Child Abduction Remedies Act (known as ICARA and codified at 42 U.S.C. § 11601 et
seq.). Among other things, the Convention establishes a
procedural framework among contracting states to allow for the immediate return
of children wrongfully removed from one contracting state and present in
another contracting state.
The
Convention is limited to child abductions committed by a parent or guardian of
the child, and only those abductions that breach the “rights of custody”
granted to the other parent or legal guardian under the law of the state “in
which the child was habitually resident immediately before the removal or
retention . . .” as set forth in Article 3. While the Convention provides a
custodial parent or guardian the right to seek return in the country where the
child has been removed to (assuming it is a contracting state), there are
exceptions to the right of return, spelled out in Article 13, such as where
there has been consent to the removal, or if there is a “grave risk” of harm to
the child if returned. The Convention does not, however, set any legal
standards as to which parent or guardian should have custody of the child.
Instead, the focus of the Convention is squarely on facilitating where these
issues should be decided and enforcement of national custody decisions in
contracting states through prompt return of children to their country of
habitual residence.
Like
many private international law conventions seeking improved judicial and legal
cooperation, Article 6 of the Convention requires contracting states to
designate a “central authority” to facilitate the process for requesting return
of a child and for monitoring the enforcement of return orders. In the United
States, the Office of Children's Issues in the State Department's Bureau of
Consular Affairs serves as the central authority. Country
officers in the Office of Children’s Issues serve as a point of contact for
parents abroad seeking to find their child in the United States. The State
Department also issues regular reports on Compliance with the Convention.
According to the 2010 report covering fiscal year 2009, 324 children removed to
or retained in other countries were returned to the United States under the
Convention, while 154 children removed to or retained in the United States were
returned to their countries of habitual residence. More recently, the State
Department’s compliance reports have focused on the success in enforcing return
orders in contracting states. These compliance reports can be viewed at
http://travel.state.gov/content/childabduction/
english/legal/compliance.html.
To enforce a right of return in a
court in the United States, the federal implementing legislation allows
custodial parents from other contracting states to initiate proceedings in a
federal or state court of appropriate jurisdiction. See 42 U.S.C. §
11603(a). If the court determines that the child has been wrongfully removed
to or retained in the United States (i.e., that the child has been removed in
violation of the other parent’s custody rights), the child is “to be promptly
returned” to the child’s country of habitual residence. See 42 U.S.C. §
11601(a)(4). Once
returned, the domestic courts of the country of habitual residence will
determine the merits of the custodial dispute.
In
recent years, the United States Supreme Court has decided two important issues
relating to the litigation of requests for return under ICARA. In the first
case, Abbott v. Abbott, 130 S. Ct. 1983 (2010), the Supreme Court was
called upon to interpret the scope and language of the Convention. In
particular, the Supreme Court had to determine whether a parent’s ne exeat rights
granted under domestic law (Chilean law in the Abbott case), amounted to
a “right of custody” making removal from the country of habitual residence
without that parent’s consent wrongful under the Convention. In the second
case, Chafin v. Chafin, 133 S. Ct. 1017 (2013), the Supreme Court
dealt with a procedural issue with respect to the appeal of a return order
granted in the United States. Each case highlights some of the difficulties in
interpreting and applying the Convention in the United States.