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report raises important questions as to whether and how the NVC process and the 1982 Citizenship
Law relate to two prohibited acts of genocide: (1) causing serious mental harm to Rohingya, and
(2) deliberately inflicting on Rohingya conditions of life calculated to bring about its physical
destruction in whole or in part.
Causing Serious Mental Harm as a Prohibited Act of Genocide
For an act or omission to qualify as serious mental harm for the purposes of establishing genocide,
the harm must be intentionally inflicted.312 Tribunals have held that serious mental harm centers on
harm that is “more than a minor or temporary impairment of mental faculties.”313 While such harm
need not be “permanent or irremediable,” it must result in “grave and long-term disadvantages to
a person’s ability to lead a normal and constructive life” going beyond “temporary unhappiness,
embarrassment or humiliation.”314
International tribunals have noted the difficulty of finding “causing serious mental harm” as a
prohibited act of genocide due, in part, to evidentiary standards used by the courts in determining
if the perpetrators possessed the requisite knowledge of the impact of their actions. Documentation
of the knowledge must be “established by clear and public proof,” and the harm must have been
deliberate and not accidental.315
Tribunals undertake this assessment on a case-by-case basis with particular regard to the
circumstances of each situation.316 The International Criminal Tribunals for both Rwanda and the
former Yugoslavia interpreted serious mental harm to encompass “acts of torture, inhuman or
degrading treatment, sexual violence including rape, interrogations combined with beatings, threats
of death, and deportation,” as well as persecution.317 Detaining individuals in conditions designed
to cause “degradation, deprivation of . . . rights as human beings and to . . . cause . . . inhumane
suffering and torture” may also constitute serious mental harm.318
Fortify Rights documented how Myanmar authorities tortured imprisoned Rohingya who refused
to accept the NVC, potentially causing “serious mental harm.” One Rohingya detainee said the
authorities stopped feeding him after he refused to accept the NVC.319 Myanmar authorities also
explicitly or implicitly threatened Rohingya with death if they did not accept the NVC.320 These
threats often came after the person being threatened already experienced physical violence, such as
beatings, by the authorities and/or witnessed the authorities beat or kill other Rohingya.321 Myanmar
authorities also threatened Rohingya with imprisonment or extending the term of imprisonment
312 Prosecutor v. Brdanin, ICTY, Case No. ICTY-99-36-T, Judgement (Trial), September 1, 2004, para. 690.
313 See also, for example, Prosecutor v. Semanza, ICTR, Case No. ICTR-97-20-T, Judgment (Trial), May 15, 2003, para. 321.
314 Prosecutor v. Radislav Krstić, ICTY, Case No. IT-98-33-T, Judgment (Trial), August 2, 2001, para. 513; Prosecutor v.
Akayesu, ICTR, Case No. ICTR-96-4-T, Judgment (Trial), September 2, 1998, para. 502.
315 Krstić, ICTY, Case No. IT-98-33-T, Judgment (Trial), para. 95.
316 Id. at para. 502.
317 Prosecutor v. Blagojevic and Jokic, ICTY, Case No. ICTY-02-60-T, Judgment (Trial), January 17, 2005, para. 646 (citing
ICTY and ICTR cases). See also, for example, Akayesu, ICTR, Case No. ICTR-96-4-T, Judgment (Trial), para. 504 (holding
that “serious bodily or mental harm [ . . . ] to mean acts of torture, be they bodily or mental, inhumane or degrading
treatment, persecution.”) (Emphasis added).
318 Krstić, ICTY, Case No. IT-98-33-T, Judgment (Trial), para. 508.
319 Fortify Rights interview with G.C., Cox’s Bazar District, Bangladesh, June 18, 2019.
320 Ibid. See also, for example, Fortify Rights interview with A.C., Cox’s Bazar District, Bangladesh, November 4, 2018;
Fortify Rights interview with G.G., Cox’s Bazar District, Bangladesh, June 22, 2019.
321 See, for example, Fortify Rights interview with G.C., Cox’s Bazar District, Bangladesh, June 18, 2019; Fortify Rights
interview with A.C., Cox’s Bazar District, Bangladesh, November 4, 2018.
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