Should Dwain Chambers - and other British athletes facing lifetime bans from the Olympics -compete in the London Olympics next year? Opinion is divided in sporting circles. Some fellow athletes say he should not; whilst others say that he should be allowed to do so. Maurice Greene, a fellow sprinter, is in the ‘no’ camp; whereas Paula Radcliffe, the marathon world record holder, is firmly in the ‘yes’ camp, characterising the ban as being unfair, particularly as he owned up to the doping offence!
This debate regarding the British Olympic Association (BOA) bye-law 25, which imposes an automatic ban for life from the Olympics on any British Athlete who has been suspended from competition as a result of being ‘convicted’ of a doping offence has been sparked off again, this time by a landmark ruling of the Court of Arbitration for Sport (CAS), handed down on 6 October 2011, in the case of the American 400m Olympic champion LaShawn Merritt. So, what was this case and what did the CAS decide?
Following a joint request for arbitration filed by the United States Olympic Committee (USOC) and the International Olympic Committee (IOC) regarding the validity of the ‘Regulations Regarding Participation in the Olympic Games - Rule 45 of the Olympic Charter’ (also known as the ‘Osaka Rule’), the Court of Arbitration for Sport (CAS) issued the following decision:
‘The IOC Executive Board’s June 27, 2008 decision prohibiting athletes who have been suspended for more than six months for an anti-doping rule violation from participating in the next Olympic Games following the expiration of their suspension is invalid and unenforceable’.
The CAS Arbitral Panel, composed of Prof. Richard H. McLaren (Canada), President, Mr David W. Rivkin (USA) and Mr Michele Bernasconi (Switzerland), came to the conclusion that the ‘Osaka Rule’ was more properly characterised as a disciplinary sanction, rather than a pure condition of eligibility to compete in the Olympic Games.
Such a disciplinary sanction is not in compliance with Article 23.2.2 of the World Anti-Doping Code (WADA Code), which provides that the Signatories of the Code may not introduce provisions that change the effect of periods of ineligibility provisions of the WADA Code, because it adds further ineligibility to the WADA Code anti-doping sanction after that sanction has been served.
The Panel further held that, because the IOC made the WADA Code a part of its own governing statute (the Olympic Charter, under Rule 44), the ‘Osaka Rule’ is in fact a violation of the IOC’s own Statute and is therefore invalid and unenforceable.
The CAS Panel also emphasised that if the IOC wanted to exclude athletes who have been sanctioned for doping from the Olympic Games, it could propose an amendment to the World Anti-Doping Code, which would allow other Signatories to consider such an amendment and possibly to adopt it. If so, no ne bis in idem issue (prohibition against double jeopardy) would be raised, as the ineligibility would be part of a single sanction. Moreover, the principle of proportionality could be met because only one adjudicatory body would be in position to assess the proper sanction for certain behaviour, taking into consideration the overall effect of the sanction to be imposed.
It has been reported that David Howman, the Director General of WADA, has written to the BOA asking them to review and reconsider their rule. However Lord Moynihan, the President of the BOA and a former UK Sports Minister, maintains that it perfectly valid and enforceable, claiming that it is an eligibility matter. How can this position can be maintained in the light of the CAS decision in the LaShawn Merritt case, where the IOC argued that the so-called ‘Osaka’ rule was an eligibility one and the CAS held that it was a disciplinary sanction? I would argue that the BOA rule imposes an additional sanction on British athletes that have fallen foul of the doping rules, been suspended and have served their time only to find that they face an additional sanction neither foreseen nor approved by the WADA Code, which after all is – or at least should be – the sole body dealing with all aspects of doping in sport. This additional sanction is clearly the effect of the BOA rule, and this effect is not affected by the fact that it is possible to appeal to the BOA for the rule to be lifted in certain cases, according to their particular circumstances. Equally, the fact that the BOA claims that 39 out of 42 such appeals have been successful is irrelevant, if not only for the fact that in three of those cases, the athletes concerned have suffered a double penalty, that is, double jeopardy, which is illegal because no one can be punished twice for the same offence.
Apart from the above legal arguments, not to mention the clear possibility - in my opinion - of the BOA rule being held by a Court to be an unreasonable ‘restraint of trade’ for ‘elite’ athletes (those who earn their livelihoods through the practice of their sports) and, therefore, void and unenforceable, there also are some sporting considerations that should be taken into account. David Millar, the former cycling world champion who is also affected by the BOA rule, argues that it does not encourage the rehabilitation of offenders who have served their time, or allow for any kind of education of athletes concerning the taking of performance-enhancing drugs. There is also another sporting consideration, and that is discrimination. Apparently, according to the International Association of Athletics Federations, there are at least 83 non-British athletes not affected by the BOA rule who will now be able to compete in the 2012 London Olympics as a result of the CAS ruling. Under the IOC Charter, discrimination of any kind is unlawful! After all, sport is – or, at least, should be – a matter of fairness and athletes competing on a so-called ‘level playing field’.
In my view, the BOA has an overwhelming case to answer and should scrap their rule, particularly in the light of the clear decision from the CAS in the LaShawn Merritt doping case.
Professor Ian Blackshaw
TMC Asser International Sports Law Centre, The Hague
ian.blackshaw@orange.fr