Practice Relating to Rule 116. Accounting for the Dead
Section A. Identification of the dead prior to disposal
The Russian Federation’s Regulations on the Application of IHL (2001) provides in its chapter on logistic support:
164. Search for, collection, identification and burial of the dead members of the enemy armed forces as well as of other victims of armed conflicts shall be organized immediately, as soon as the situation permits, and carried out … to establish the identity of the dead …
165. Burial of the dead members of the enemy armed forces and other victims of armed conflicts shall be organized by the deputy division (regiment) commander for logistics. Collection, identification and burial of the dead as well as the graves (gravesites) registration shall be performed by the units (teams) headed by officers appointed by a division (regiment) commander’s order. Such units (teams) commanders shall be provided with transport, tools, materials and disinfectants.
166. Bodies of the dead enemy servicemen and those of other victims of armed conflicts shall be gathered in the assigned areas.
Whenever possible, the fact of death shall be confirmed by a representative of the medical service. In the course of identification, if the identification information is available (documents, personal identification number – identity disc), lists of names of the dead shall be drawn up, including nationality (citizenship); service or personal number; surname; first name or names; date of birth; any other particulars shown on the identity card or disc; date and place of death; particulars concerning wounds (mutilation) or illness and the cause of death.
If identification is impossible and if the situation permits, the appearance of the dead shall be described, prints of his fingers and palms taken, a card filled in and full face and profile photos taken in order to identify the dead person in the future.
167. A half of a double identity disc or the identity disc itself if it is a single disc, should remain on the body both when buried or cremated.
A two-copy inventory shall be made of the identity disk or one half of the double identity disc, if any, last wills or other documents of importance to the next of kin, money and in general all articles of an intrinsic or sentimental value, which are found on the dead. All these articles shall be sealed into a parcel with the second copy of the inventory enclosed and sent, according to the established procedure, together with the burial acts and the lists of the names of the dead.
In 2007, in the Burial case, the Russian Federation’s Constitutional Court was called upon to rule on the constitutionality of two laws related to the interment of suspected terrorists whose deaths resulted from the interception of their terrorist acts. The Court held that the restrictive measures introduced by these laws were in conformity with the Constitution. The Court stated:
3.1 … [T]he interest in fighting terrorism, in preventing terrorism in general and specific terms and in providing redress for the effects of terrorist acts, coupled with the risk of mass disorder, clashes between different ethnic groups and aggression by the next of kin of those involved in terrorist activity against the population at large and law-enforcement officials, and lastly the threat to human life and limb, may, in a given historical context, justify the establishment of a particular legal regime, such as that provided for by section 14(1) of the Federal Act [on Interment and Burial of 12 January 1996, as amended], governing the burial of persons who escape prosecution in connection with terrorist activity on account of their death following the interception of a terrorist act. …
3.2. Action to minimise the informational and psychological impact of the terrorist act on the population, including the weakening of its propaganda effect, is one of the means necessary to protect public security and the morals, health, rights and legal interests of citizens. It therefore pursues exactly those aims for which the Constitution of the Russian Federation and international legal instruments permit restrictions on the relevant rights and freedoms.
The burial of those who have taken part in a terrorist act, in close proximity to the graves of the victims of their acts, and the observance of rites of burial and remembrance with the paying of respects, as a symbolic act of worship, serve as a means of propaganda for terrorist ideas and also cause offence to relatives of the victims of the acts in question, creating the preconditions for increasing inter-ethnic and religious tension.
In the conditions which have arisen in the Russian Federation as a result of the commission of a series of terrorist acts which produced numerous human victims, resulted in widespread negative social reaction and had a major impact on the collective consciousness, the return of the body to the relatives … may create a threat to social order and peace and to the rights and legal interests of other persons and their security, including incitement to hatred and incitement to engage in acts of vandalism, violence, mass disorder and clashes which may produce further victims. Meanwhile, the burial places of participants in terrorist acts may become a shrine for certain extremist individuals and be used by them as a means of propaganda for the ideology of terrorism and involvement in terrorist activity.
In such circumstances, the federal legislature may introduce special arrangements governing the burial of individuals whose death occurred as a result of the interception of a terrorist act in which they were taking part.
The Court also stated:
The constitutional and legal meaning of the existing norms presupposes the possibility of bringing court proceedings to challenge a decision to discontinue, on account of the deaths of the suspects, a criminal case against or prosecution of participants in a terrorist act. Accordingly, they also presuppose an obligation on the court’s part to examine the substance of the complaint, that is, to verify [that] the decision and the conclusions therein [are lawful and well founded] as regards the participation of the persons concerned in a terrorist act, and to establish the absence of grounds for rehabilitating [the suspects] and discontinuing the criminal case. They thus entail an examination of the lawfulness of the application of the aforementioned restrictive measures. Until the entry into force of the court judgment the deceased’s remains cannot be buried; the relevant State bodies and officials must take all necessary measures … to ensure compliance prior thereto with the requirements concerning the identification of the deceased … and of the time, location and cause of death.