I. Introduction
On 6 August 2019, the Fifth Revision Chamber of Colombia’s Constitutional Court (the “Court”) issued judgment T-354/19 resolving a constitutional injunction (tutela) submitted by a state-owned company and its subsidiary against an international arbitral award (the “Tutela”). [1] In its decision, the Court recognized the admissibility of constitutional injunctions against awards issued in international arbitrations seated in Colombia. However, it concluded that the Tutela was not admissible in the specific case because the annulment proceedings had not been exhausted.[2]
II. Background
On December 22, 2010, Gecelca S.A
E.S.P (“Gecelca”) and its subsidiary Gecelca 3 S.A.S E.S.P (“Gecelca 3”), and the
Consortium CUC-DTC, constituted by China United Engineering Corporation and
Dongfang Turbine Co. LTD. (the “Consortium”), executed an EPC contract to build
a thermoelectric plant in Córdoba, Colombia (the “Contract”). During the
development of the Contract certain disputes arose between the parties
regarding, inter alia, the term for performance
of the Contract, Gecelca 3’s alleged delay in the payment of invoices, and the
alleged breach of the Contract by the Consortium.
On December 29, 2014, the
Consortium submitted a request for arbitration under the arbitration clause of
the Contract. The tribunal, seated in Bogota, was constituted on March 11, 2015
from the list of “international arbitrators” of Bogota’s Center of Arbitration.[3]
The Parties disputed whether the arbitration was to be conducted as a national
or an international arbitration.
On May 8, 2015, the Tribunal issued
a partial award deciding that the arbitration was international because two of
the four criteria provided for in Article 62 of Law 1563 of 2012 (Statute of
National and International Arbitration) were met in the specific case,[4]
i.e. that the parties were domiciled in different States at the time of
execution of the arbitral clause and that the dispute affected international
trade interests (the “Partial Award”).
On December 4, 2017, the Tribunal
issued a final award declaring that Gecelca 3 had breached the Contract and ordering
the payment of USD $40.827.427,7 to the Consortium (the “Final Award”).
On January 11, 2018, Gecelca 3 filed
an action to set aside the Final Award before the Third Section of the Council
of State (the “Third Section”), because, inter
alia, it was inconsistent with Colombia’s international public order.
On February 28, 2018, Gecelca and
Gecelca 3 (the “Gecelca companies”) presented a constitutional injunction (tutela) against the Final Award alleging
that the Tribunal had violated their fundamental rights to due process and
access to justice. Additionally, the Gecelca companies requested interim
measures to suspend the payment ordered in the Final Award.
The Tutela was declared
inadmissible in first and second instance. On July 26, 2018, the Fourth Section
of the Council of State – the first instance competent judge –declared that the
Tutela was inadmissible considering that this mechanism could not be
used to re-open a legal debate addressed during the arbitral proceedings. On September 12, 2018, the Fifth Section of
the Council of State –the second instance competent judge– confirmed the first
instance judgment and clarified that, since constitutional injunctions are
subsidiary mechanisms, the Tutela was inadmissible because the decision
to set aside the Final Award was still pending.
On October 29, 2018, the
Constitutional Court selected the Tutela for revision.
III. The Constitutional Court’s decision
The first question facing the Court
was whether the Tutela was admissible. To address this matter, the Court
divided its analysis in three main issues: (i) the exceptional nature of
constitutional injunctions against arbitral awards; (ii) the application of
said exceptional nature to awards issued in international arbitrations; and
(iii) whether the Tutela complied with the applicable requirements to be
admitted.
- The
exceptional nature of tutelas
against arbitral awards
Recalling previous jurisprudence on
this matter,[5]
the Court concluded that arbitral awards are materially equivalent to judicial
decisions considering that both are issued in the exercise of jurisdictional
functions and have res judicata effects. For this reason, the admissibility
of constitutional injunctions against arbitral awards must be analyzed under
the same requirements applicable to judicial decisions.[6]
However, said requisites must be more rigorously applied to arbitral awards than to judicial decisions, considering
that arbitral awards derive from the express will of individuals deciding to
depart from the jurisdiction of the courts.[7]
Accordingly, the admissibility of constitutional
injunctions against arbitral awards must be determined on the basis of the
following criteria:[8]
(i) constitutional relevancy: the arbitral award must have violated fundamental
rights directly; (ii) subsidiarity: applicable remedies must have been
previously exhausted (according to Article 40 of Law 1563 of 2012,[9]
the only applicable remedy to arbitral awards is annulment); and (iii) compliance
with “specific admissibility requirements”, which refer to the existence of substantive,
organic, procedural, or factual defects of the award or the tribunal’s
constitution, also known as the doctrine of “vías de hecho”.[10]
- The
very exceptional nature of tutelas
against arbitral awards in international arbitration
The Court concluded that the same
criteria applicable to analyze the admissibility of arbitral awards issued in
national arbitrations, must be applied to awards issued in international
arbitrations. Additionally, it stressed that three additional issues must be taken
into consideration in regard to international arbitral awards. First, the express
prohibition of judicial intervention in international arbitrations provided for
in Article 67 of Law 1563 of 2012.[11]
Second, the applicable law to the arbitration. And third, the grounds for
annulment in international arbitration.
As to the prohibition of judicial
intervention in international arbitrations incorporated in Article 67 of Law
1563 of 2012,[12] the
Court concluded that said proscription does not supersede the primacy of the
Constitution and the right of any individual to access the tutela as a mechanism
for constitutional protection. Therefore, such prohibition cannot be applied to
proscribe –in the abstract and in general– the admissibility of tutelas
against arbitral awards in international arbitration.
As to the applicable law, the Court
concluded that when the substantive law applicable to the arbitration is
foreign, constitutional judges shall only apply Colombia’s international public
order as parameter of constitutional control. In consequence, “specific admissibility requirements” are only
applicable when the award is “partially governed by Colombian law”, not when the
substantive law applicable to the arbitration is foreign.
As to the grounds for annulment of
international arbitral awards, the Court concluded that the admissibility of tutelas
against international awards is even more exceptional than in the case of
national awards, considering that the only competent authority to determine if
the international arbitral award is contrary to Colombia’s international public
order –which cannot be invoked as a ground to set aside an award issued in a
national arbitration– is the one resolving the request to set aside the
international arbitral award. Therefore, for a constitutional injunction to be
admissible against an award issued in an international arbitration, annulment
proceedings must be previously exhausted.
Based on the above, the Court
concluded that tutelas against arbitral awards are admissible only in
exceptional circumstances (“procedencia excepcional”) and tutelas against awards in international
arbitrations seated in Colombia are admissible in very exceptional
circumstances (“procedencia excepcionalísima”).
- Admissibility
of the Tutela
presented by the Gecelca companies
The Court concluded that the Tutela filed against the Final Award was not admissible considering that the Gecelca companies had not previously exhausted the proceedings to set aside the award, which are still pending before the Third Section of the Council of State. C
IV. Comments
The Court’s decision leaves several
questions unresolved.
First, despite the fact that
Colombia is a contracting party to the New York Convention of 1958 (the
“Convention”), the Court did not address the interplay between Colombia’s
international obligations under the Convention (Article V(1)(e) of the
Convention) and the domestic legal regime.
Second, the Court’s analysis
regarding the relation between “the law governing the award” and the
admissibility of constitutional injunctions is unclear. The Court states that
in those cases where the “the law governing the award” is foreign, there is no
room to analyze the admissibility of a tutela in light of criteria
different than Colombia’s international public order. Conversely, in those
cases where “the law governing the award” is, at least partially Colombian, the
constitutional judge may apply “specific admissibility requirements”, referring
to the doctrine of “vías de hecho”, a catalogue of substantive, organic,
procedural, and factual defects in which the award or the tribunal may incur. For
instance, an award would incur in a “substantive defect” when the
interpretation or application of a rule in a specific case, ignores constitutional
judgments with erga omnes effects that have defined its scope.
While it is far from clear what the
Court means by with “the law governing the award”, it seems to be referring to the
substantive applicable law. If this is so, then a constitutional judge –when
analyzing the admissibility of a tutela in an international arbitration
where Colombian law is applicable to the merits– may review the merits of the
case to determine if the arbitral tribunal incurred in vías de hecho.
Third, the Court states that
national awards are “materially equivalent” to judicial decisions because arbitrators
are temporarily invested with the function of administering justice according
to Article 116 of the Constitution.[13]
The Court seems to conclude that the same equivalency applies to awards issued
in international arbitrations but does not explain how it arrives to such
conclusion.
The Court does not explain whether,
and if so, why an international arbitrator shall be deemed as a “judge” while acting
as arbitrator in a particular case. To add another ingredient to the confusion,
one of the Justices of the Court clarified its vote to the effect that, in his
view, international arbitrators are not judges. Does it mean that the court
considers that the arbitrators of the Tribunal were acting as judges? If so, then may a non-Colombian be considered
a Colombian judge exercising jurisdiction in Colombia? May non-Colombian
arbitrators seated in an arbitration in Colombia trigger the international
responsibility of the Colombian State?
V. Conclusion
This is a decision of one of the
Chambers of the Court, not a decision of the plenary of the Court nor a
decision to unify jurisprudence, and therefore it only applies to the specific
case and may be revisited.
In its review of the case, the
Court invited scholars and institutions to provide comments on several
questions related to the Tutela, the
key one being whether constitutional injunctions should be admitted against
awards issued in international arbitrations seated in Colombia. The majority of
the opinions were in the negative based on the same point of departure: arbitrators
in international arbitrations seated in Colombia are not judges, public
officials, or private parties exercising public functions. The Court, however,
seems to have departed from this premise and based its analysis on the thesis
that international arbitrators comply with public functions.
*Eduardo Zuleta, Partner, Zuleta
Abogados Asociados S.A.S; international arbitrator; lecturer at Georgetown
University.
*Maria
Camila Rincón, Associate, Zuleta Abogados; former
adviser, Colombia’s National Agency for the Legal Defense of the State; former
adviser, Colombia’s Directorate of Foreign Investment and Services of the
Ministry of Trade, Industry and Tourism; lecturer at Universidad del Rosario.
[1] The tutela
is a constitutional injunction that aims to protect fundamental constitutional
rights when they are violated or threatened by the action or omission of any
public authority. This mechanism is incorporated in Article
86 of the Constitution. Tutelas proceed when: (i) fundamental
constitutional rights are violated or threatened; (ii) when there are no other
means to protect the right; and (iii) when by action or omission of a private
individual in the event that said individual provides a public service, or
exercises public functions; and (iv) when the actor is in a situation of
defenselessness or subordination with respect to the individual against whom
the tutela is brought.
[2] Colombian Constitutional Court, Judgment T-354 of 2019. Avaible at: http://www.corteconstitucional.gov.co/relatoria/2019/t-354-19.htm
[3] Bogota’s Chamber
of Commerce, Arbitration and Conciliation Center. Available at: http://www.centroarbitrajeconciliacion.com
[4] Law 1563 of 2012, Article 62: “It is understood that an arbitration is
international if: (a) The parties to an arbitration agreement have, at the time
of the execution of said agreement, their domiciles in different States; or (b)
The place of performance of a substantial part of the obligations or the place with
which the object of the dispute has a closer relationship is located outside
the State in which the parties have their domiciles; or (c) The controversy
submitted to arbitration decision affects the interests of international
trade.” Available at: http://www.secretariasenado.gov.co/senado/basedoc/ley_1563_2012_pr001.html#62
[5] Constitutional
Court, Judgment SU-033 of 2018. Available at: http://www.corteconstitucional.gov.co/relatoria/2018/SU033-18.htm
[6] Constitutional
Court, Judgment C-590 of 2005, Considerations of the Court, para. 25
[7] Constitutional
Court, Judgment SU-500 of 2015.
[8] Constitutional
Court, Judgment SU-174 of 2007. Available at:
http://www.corteconstitucional.gov.co/relatoria/2007/SU174-07.htm
[9] Article 40, Law
1563 of 2012 (free translation): “Against the arbitral award only proceeds the
extraordinary request to set aside the award, which must be duly substantiated,
before the arbitral tribunal, indicating the grounds invoked, within thirty
(30) days following its notification or that of the ruling that resolves the
clarification, correction or addition of the award. The secretariat of the tribunal
will refer the matter to the other party within fifteen (15) days without the
need of a specific ruling ordering it. Upon expiration of that term, within the
next five (5) days, the secretary of the tribunal shall send the briefs
presented by the parties together with the file to the judicial authority
competent of resolving the annulment request.” Available at: http://www.secretariasenado.gov.co/senado/basedoc/ley_1563_2012.html#40
[10] Judgment T-466 of
2011, Consideration of the Court, para. 3.4 (free translation):
I. Substantive defect: It occurs
when (i) the arbitrators base their decision on a rule that is clearly
inapplicable to the specific case, and because of that, they do not directly
recognize a fundamental right; (ii) the award lacks material motivation or its
motivation is manifestly unreasonable; (iii) the interpretation or application
made of the rule in the specific case, ignores judgments with erga omnes
effects that have defined its scope; (iv) the interpretation of the rule is
made without taking into account other provisions applicable to the case and
which are necessary to make a systematic interpretation; and (v) the rule
applicable to the specific case was neglected and therefore was left unapplied.
II. Organic defect: Occurs when the
arbitrators have absolutely no competence to resolve the matter submitted to
their consideration, either because they have manifestly acted outside the
scope defined by the parties or because they have ruled on non-arbitrable
matters.
III. Procedural defect: It
occurs when the arbitrators have issued the award in a manner completely
contrary to the procedure established contractually or in the law, and thus
have incurred in a direct violation of the right of defense and contradiction.
For the aforementioned irregularity to be of sufficient magnitude to constitute
a vía de hecho, it is necessary for it to have a direct impact in
decision, so that if the tribunal would not have incurred in such irregularity,
the decision reached by the tribunal would have been diametrically opposite.
IV. Factual defect: It occurs when
the arbitrators (i) have not assessed evidence crucial for the case’s
resolution; (ii) have made their assessment of the evidence directly violating
fundamental rights, or (iii) have based their assessment of the evidence on a
manifestly unreasonable legal interpretation. For the Court, it is necessary
that the error in the assessment of the evidence has been decisive with respect
to the decision. Available at: http://www.corteconstitucional.gov.co/RELATORIA/2011/T-466-11.htm
[11] Article 67, Law
1563 of 2012: “In matters governed by this section, no judicial authority may
intervene, except in cases and for the purposes in which this section expressly
so provides.” Available at: http://www.secretariasenado.gov.co/senado/basedoc/ley_1563_2012_pr001.html#67
[12] Article 67, Law
1563 of 2012: “In matters governed by this section, no judicial authority may
intervene, except in cases and for the purposes in which this section expressly
so provides.” Available at: http://www.secretariasenado.gov.co/senado/basedoc/ley_1563_2012_pr001.html#67
[13]
Article 116 of Colombia’s Political Constitution (free translation): “private
individuals may be temporarily invested in the function of administering
justice in the condition of jurors in criminal, conciliators or arbitrators
cases authorized by the parties to issue judgments in law or in equity, under
the terms determined by law.” Available at: http://www.secretariasenado.gov.co/senado/basedoc/constitucion_politica_1991_pr003.html#116