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Due Diligence Obligations over State Economic Entities in International Investment Law
The growing importance and sophistication of State capitalism and associated implementation of governmental policies through State economic entities, such as State-owned banks, State-owned enterprises, monopolies, and other entities close to the government, has given rise to a perception that existing international law rules are inadequate to effectively accommodate the activities of such entities. Sole reliance on customary international law principles of attribution has proven particularly problematic where governments maintain links with their economic entities that create a risk of the latter being used as conduits for governmental action. Such links may exist in a variety of forms beyond mere ownership, such as voting rights, appointment powers, the occupation of board seats by governmental ministers, private firms’ managers’ concurrent governmental posts, the imposition of governmental oversight committees within firms, coordination of economic activity in a given industry through chambers of commerce composed of former governmental ministries, overlapping board membership amongst private and State firms, and other means of directly influencing such entities beyond general regulation. This opaque relationship between the government and State economic entities may allow governments to circumvent international law obligations by channeling acts through those entities and casting such acts as private economic activity not attributable to the State. States are increasingly elaborating primary rules to overcome the perceived risks associated with State capitalism, most prominently in modern preferential trade and investment agreements. While varying in content and scope, these rules generally hold States accountable for the activities of their State economic entities by requiring the State to ensure that such activities be in compliance with the State’s treaty obligations. In this regard, they resemble classic international law standards of due diligence. Commentators and tribunals, however, have struggled in construing these provisions on State economic entities and how they interact with underlying attribution principles. This paper considers to what extent these provisions are characterized by the due diligence standard of international law. It argues that they provide a flexible means of regulating the activities of State economic entities without regard to whether their acts would be attributable under secondary attribution rules. Requiring States to exercise due diligence over their State economic entities thus addresses the perceived risks arising out of the closeness of those entities to the State without the need to make the State fully responsible for all their actions in all scenarios.