Asser International Sports Law Blog

Our International Sports Law Diary
The Asser International Sports Law Centre is part of the T.M.C. Asser Instituut

Reflecting on Athletes' Rights on the Road to the Olympic Games: The Unfortunate Story of Nayoka Clunis - By Saverio Paolo Spera and Jacques Blondin

Editor's note: Saverio Paolo Spera is an Italian qualified attorney-at-law. He holds an LL.M. in international business law from King’s College London. He is the co-founder of SP.IN Law, a Zurich based international sports law firm. Jacques Blondin is an Italian qualified attorney, who held different roles at FIFA, including Head of FIFA TMS and Head of FIFA Regulatory Enforcement. He is the co-founder of SP.IN Law. The Authors wish to disclaim that they have represented Ms. Nayoka Clunis before the Court of Arbitration for Sport in Lausanne in the context of the proceedings which led to the Award of 31 July 2024.

 

  

Every four years since more than a century,[1] a spectacular display of sportsmanship takes place over the course of a few weeks during the summer: the Olympic Games.[2]

         For thousands of athletes around the globe, the Olympic Games are “the pinnacle of success and the ultimate goal of athletic competition”.[3] In their quest to compete in the most important stage of their sport, they endure demanding and time-consuming efforts (often including considerable financial sacrifices). These endeavours occasionally lead to everlasting glory (the exploits of athletes of the calibre of Carl Lewis, or more recently, Usain Bolt[4] still resonate among sports’ observers), more often to a shorter gratification. Whether their gestures end up going down the sport’s history books or last the span of a few competitions, athletes are always the key actors of a magnificent event that continues to feed the imagination of generations of sports fans. 

And yet, situations may occur when athletes find themselves at the mercy of their respective federations in the selection process for the Olympic Games and, should the federations fail them (for whatever reason), face an insurmountable jurisdictional obstacle to have their voice heard by the only arbitral tribunal appointed to safeguard their rights in a swift and specialised manner: the Court of Arbitration for Sport (the “CAS”).[5]

This is the story of Nayoka Clunis, a Jamaican world class hammer throw athlete who had qualified for the Olympic Games of Paris 2024 and yet, due to no fault of her own, could not participate in the pinnacle of competitions in her sport. Though eligible in light of her world ranking, she was failed by her own federation[6] [AD1] [SPS2] and ultimately found herself in the unfortunate – but legally unescapable – vacuum whereby neither the CAS Ad Hoc Division in Paris nor the ‘regular’ CAS division in Lausanne had jurisdiction to entertain her claim.  

The aim of this paper is not to discuss whether Ms. Clunis would have had a chance to successfully prove her claims and compete in Paris had her case been heard on the merits, nor to debate about the appropriateness of a national federation’s selection process (also because Ms. Clunis never challenged it, having been eligible ‘from day one’).[7] Retracing the story of a sportswoman’s dramatic misfortune, this paper aims at providing an opportunity to reflect on how effective the safeguard of athletes’ rights in the context of the Olympic Games actually is. More...

Women’s Football and the Fundamental Right to Occupational Health and Safety: FIFA’s Responsibility to Regulate Female Specific Health Issues - By Ella Limbach

Editor's noteElla Limbach is currently completing her master’s degree in International Sport Development and Politics at the German Sport University Cologne. Her interests include human rights of athletes, labour rights in sport, the intersection of gender, human rights and sport and the working conditions in women’s football. Previously, she graduated from Utrecht University with a LL.M in Public International Law with a specialization in International Human Rights Law. This blog was written during Ella's internship at the Asser Institute where she conducted research for the H.E.R.O. project. The topic of this blog is also the subject of her master's thesis.

Women’s football has experienced exponential growth over the past decade, though the professionalization of the women’s game continues to face barriers that can be tied to the historical exclusion of women from football and insufficient investment on many levels. While attendance records have been broken and media coverage has increased, the rise in attention also highlighted the need for special accommodations for female footballers regarding health and safety at the workplace. Female footballers face gender specific circumstances which can have an impact on their health such as menstruation, anterior cruciate ligament (ACL) injuries and the impact of maternity. As the recent ILO Brief on ‘Professional athletes and the fundamental principles and rights at work' states “gender issues related to [occupational health and safety] risks are often neglected (p. 23).” While it could be argued that from a human rights point of view article 13(c) of the Convention on the Elimination of Discrimination of Women stipulates “the right to participate in […] sports [on an equal basis to men],” reality shows that so far practices of men’s football were simply applied to women’s football without taking into consideration the physiological differences between male and female players and the implications that can have for female players’ health. The ILO Declaration on Fundamental Principles and Rights at Work(ILO Declaration, amended in 2022) includes “a safe and healthy working environment” as one of the fundamental rights at work (Art. 2e). This begs the question whether the scope of the right to occupational health and safety at the workplace includes the consideration of female specific health issues in women’s football. More...

Sport is sailing rudderless into geopolitical storms - Russia and Israel responses show how absence of rules makes FIFA and the IOC tools of the global north - By Nick McGeehan

Editor's note: Nicholas McGeehan is co-director of human rights research and advocacy group FairSquare, which works among other things on the nexus between sport and authoritarianism. He is a former senior researcher at Human Rights Watch and holds a PhD in international law from the European University Institute in Florence.


Boycotts, divestments and sanctions are each controversial and contentious in their own right, but when combined under the right conditions, they have explosive potential. BBC football presenter Gary Lineker found this out to his cost when he retweeted a call from Palestine’s BDS movement to suspend Israel from FIFA and the International Olympic Committee (IOC)  until such time the Israeli state ends what they called “the crime of genocide it is perpetrating in Gaza” and its occupation of Palestinian territory. Lineker quickly deleted his retweet but not before the UK’s most popular right-wing tabloid newspaper, The Daily Mail, spotted it and renewed their fulminating campaign against Lineker’s support for political causes that run contrary to the Mail’s editorial positions. The Daily Mail does not oppose sporting boycotts, in fact judging from an article by its football columnist, Martin Samuel, it was an ardent supporter of Russia’s ejection from European football in the aftermath of its invasion of Ukraine. “Why should Russian football get to be part of the continent in which it has murdered innocents?,” asked Samuel  and in that regard he was not alone and was echoing views heard across the political divide in the west at the time. 

The west continues to boycott Russia, its companies have divested from Russia, and its governments are sanctioning Russia. This includes in the sporting arena where nobody batted an eyelid when Russian football teams were excluded from FIFA and UEFA competition, and its athletes excluded from IOC competition.  So it seems obvious that it  is not so much BDS tactics that offend people in certain quarters, but rather their target. Russia can be BDS’d until the cows come home, but BDS’ing Israel is beyond the pale. You can see how it might be hard to explain to a child.

Through an examination of the widely divergent responses to Russia’s actions in Ukraine and Israel’s actions in Gaza, this piece argues that FIFA and the IOC have aligned themselves with the political positions of the countries of the global north. With reference to previous sporting boycotts, it demonstrates how an absence of rules has left FIFA and the IOC sailing rudderless into stormy geopolitical waters and argues that they need to institute rules to guide their responses to events of this gravity and magnitude. Dispensing once and for all with the canard that sport and politics can be kept apart would enable sport’s governing bodies to appropriately leverage their political power and not merely act as puppets of the global north. More...


The State of Football Governance - Advocate General Szpunar Paves the Way for a Critical Assessment of the Status Quo - By Robby Houben (University of Antwerp) & Siniša Petrović (University of Zagreb)

Editor's noteRobby Houben is a professor at the University of Antwerp, specializing in sports enterprise law and corporate law. He founded the University of Antwerp’s Football College, championing good governance in professional football. He is editor of the Research Handbook on the Law of Professional Football Clubs (Edward Elgar Publishing 2023). Siniša Petrović is a professor at the University of Zagreb, specializing in sports law and corporate law.


Mid-March, the YouTube channel The Overlap released an interview with Aleksander Čeferin, the current president of UEFA. Asked about the Super League’s court case against UEFA, Čeferin referred to it as ‘mainly symbolical’. This statement reveals a deep trust in the status quo. In this short note we assess if such trust is justified. On the basis of advocate general (AG) Szpunar’s recent opinion in a case on home grown player rules, we argue it is not. 

What is it about? On 9 March, AG Szpunar of the Court of Justice of the EU (‘CJEU’) delivered his opinion in the case of Royal Antwerp FC against the Royal Belgian Football Association (‘RBFA’) and the European Football Association UEFA. The case relates to the so-called ‘home grown players’ rule (‘HGP rule’). This rule requires clubs to include at least 8 locally trained players in the list of 25 players that make the A team. According to Szpunar, this likely amounts to an indirect nationality discrimination and, at least, to a restriction of the free movement rights of football players under Article 45 of the Treaty on the Functioning of the EU (‘TFEU’). Nevertheless, the AG considers the HGP rule valid as such, as, according to him, it serves the legitimate aims of stimulating the training of youth players and increasing the competitive balance between clubs. Only insofar as it allows that home grown players includes players trained by another club in the same league (under the UEFA HGP rule, 4 out of 8 home grown players), instead of by the club itself, the HGP rule is not suitable to achieve these aims. His recommendation to the court is, hence, to partially invalidate the HGP rule. He would likely find a (future) HGP rule requiring home grown players to be trained only at the club compatible with EU law. 

Is sport so special that it deserves special treatment? On the basis of Wouters and Meca-Medina it is widely accepted that restrictions of competition in sports can be justified if they proportionately pursue legitimate aims. Interestingly, in his assessment of the proportionality of the HGP rule, AG Szpunar seems to do Wouters away as a peculiar case. He finds ‘it difficult to deduce a general principle … according to which private entities bound by Article 45 TFEU would have a greater discretion than that of Member States in comparable situations’. Moreover, he argues, such greater discretion may be warranted in matters transcending classical economic policy, but the HGP rule has a strong economic component and is not such a matter (paras 76-78). As a result, Szpunar sees no reason ‘to afford UEFA and the RBFA a wider discretion than would be the norm for a Member State to justify a restriction of Article 45 TFEU’ (para 78). So, no specific exceptions for football that do not apply to other economic sectors! Wrong, because, at the same time, the AG allows to justify the HGP rule in view of legitimate aims, in this case youth development and competitive balance. Hence, while closing the back door for exceptional treatment of football in his assessment of proportionality, he opens the front door for such exceptional treatment as a matter of principle quite widely - without really underpinning why, nor providing evidence of why football is so special compared to let’s say universities or hospitals, who educate youngsters too, undoubtedly for the public good, and don’t enjoy such special treatment. 

But let’s assume sport is somehow special and deserves a special treatment. Does the HGP rule serve both the aim of youth development and increasing competitive balance? Probably not. It seems the aims are conflated here. Yes, the HGP rule serves the aim of encouraging the training of players (at professional football clubs that is), and arguably it makes sense to incentivize clubs to train players. But it is unlikely that this will contribute to more competitive balance between clubs. This has to do with the territorial model of football: ‘domestic’ competitions are organized along national borders. Clubs from larger countries logically have a larger talent pool to recruit young players from than clubs from smaller countries, and therefore they likely have a competitive advantage. Moreover, assuming the pool of talented young players is larger in bigger countries, it is likely that these youngsters will add sporting value to the A-team. That’s a win-win. In smaller countries, clubs will typically have a tougher job recruiting domestic top talent, simply because the pool is smaller. Adding to that is that the real top youngsters of smaller countries will probably sign their first professional player contract with a club of a top tier foreign competition, leaving only the ‘best of the rest’ for the local clubs. At the age of 16, the next Kevin De Bruyne will of course become a ‘club-trained’ local player somewhere, but not in a Belgian club. Cutting a long story short, from the perspective of fair competition, the HGP rule is not neutral and favors clubs that happen to reside in larger countries. 

Overboard with domestic borders then? That is what small Luxemburg club Swift Hespérange claims. Swift argues its free movement rights and free competition is infringed because it has to play football within the Luxembourg borders. As a result, it cannot grow and become competitive with clubs from surrounding leagues. Szpunar’s opinion provides food for thought for this case too, as he recognizes that the territorial model of football favors clubs in larger countries more than clubs in smaller countries (paras 68 and 70). His opinion therefore seems to accord with Swift’s intuition. 

How could a HGP rule become more neutral in a territorial model of football, with club football organized along domestic borders? Arguably, the rule could concentrate on the under 21 teams, and/or under 23 teams, where training actually takes place, allowing clubs to compose their A-teams with the best players, regardless of where they were trained. Talented club-trained young players will make their way to A-teams on the basis of merit. Clubs could be incentivized to field club-trained players in their A-team through increased solidarity payments from centralized earnings. Such an approach could serve both the aims of stimulating the training of players and increasing (or better: not deteriorating) the competitiveness of local clubs. 

Is this THE solution? We don’t know, and we don’t pretend to know. We raise it to illustrate a point: the importance of alternative systems to the HGP rule in the Antwerp case. AG Szpunar rightly asserts that the burden of proof to evidence that a rule is proportionate in view of legitimate aims, so that it can be upheld instead of invalidated, lies with the claimant of such exception, in the Antwerp case UEFA and the RBFA (para 61). Remarkably, the proportionality of the HGP rule is subsequently simply assumed. Moreover, alternatives brought forward by Antwerp, whereas the burden of proof lay with UEFA and the RBFA, were put aside as more restrictive, and considered not to be equally effective without much consideration (paras 79-81). Is it not more in line with logic that when the burden of proof falls upon a party, if it fails to discharge it then its claim is simply denied? More fundamentally, if rules are simply assumed to pursue legitimate objectives instead of evidenced to do so, is this not an open invitation for ‘sports washing’, the equivalent of green washing in sports? Of course, judges are not industry experts. As a result, we may not reasonably expect too much. Regulators must have leeway to make choices. But judges can and should perform oversight, assuring: i) rules are at least aiming for the target, ii) the regulator effectively considered alternatives, iii) there are good reasons for the regulator to prefer the chosen solution over another. If the questioned rule fails this test, it should be declared invalid – and the regulator should be sent back to the drawing board.[1]

So, AG Szpunar’s opinion is not perfect. Yet, it certainly puts the finger on the sore spot of football governance: double hatting and the inherent conflicts of interest that brings. In this respect, AG Szpunar’s opinion seems to provide counterweight to AG Rantos’ opinion in the European Super League (‘ESL’) case (see the subtill ‘in this respect’ in fn 39 of Szpunar’s opinion). In essence, AG Rantos argues that UEFA’s potential design errors are irrelevant, as the ESL, because of its (at the time) semi-closed set-up, should have been rejected anyway. He even asserts that open sport competitions are a constitutional principle of EU law, enshrined in Article 165 TFEU. This is a (too) far stretch, notably not repeated by AG Szpunar. Moreover, Szpunar makes UEFA’s governance deficit so much more explicit than Rantos. Because UEFA is both the regulator and monopolist of European club football, Szpunar considers that conflicts of interest are ‘bound to arise’ (in the French official version: ‘inévitable’; in Dutch: ‘onvermijdelijk’ – so: inevitable). Moreover, confronted with such conflict, he believes UEFA and domestic football regulators will have a natural reflex to let their own commercial interests prevail over the public interest (para 58). 

AG’s Szpunar’s opinion is authoritative, and probably even more than usual. Szpunar is first advocate general, and primus inter pares. His opinion will weigh in on the other football cases pending before the CJEU too, especially the ESL case and the aforementioned Swift case. As such, it could serve as a ‘canary in the coalmine’ for what is still to come later this year. Anyway, if the CJEU judges in the ESL case follow Szpunar’s assessment of UEFA’s double hatting, those who were celebrating the status quo after the Rantos opinion might be in for a scare soon.  

2023 is a year of truth for the organization of professional football. Dissatisfaction with the status quo has led to a record number of football related cases before the CJEU. These cases are heard separately, but at the same time inevitably interconnected, because they run in parallel on similar subject matters. Szpunar’s opinion makes at least clear that all cards are still on the table and the status quo might not prevail. 

Courts can only do what they are allowed to: apply the law in a given case. They can’t solve football’s governance deficit. Only politicians can ‘save football from itself’ by regulating it and by tackling policy failures exposed by professional football’s commercial explosion fueled primarily by clubs and players. Stakeholders such as clubs and players deserve a seat at the decision-making table in a governance model for pro football 2.0. For example, it is not acceptable any more for football regulators with no skin in the game to continue to congest match calendars (40 or so more matches in the 2026 World Cup !) without consulting clubs and players. Furthermore, the cleanest way to resolve conflicts of interest once and for all would be to separate UEFA’s functions - at least to ensure that adequate procedures are in place to avoid, mitigate and make transparent conflict of interests (in that order), and allowing access to public courts for judicial scrutiny. To be meaningful, such action should be taken at EU level, so as to create a level playing field for clubs across Europe and – because of the ‘Brussels’ effect – beyond.  

We are not naïve. There is no political appetite for reforming football yet. That was made clear during the ESL hearing early July 2022, where more than 20 Member States intervened in support of UEFA and the status quo. But, one, two or three critical decisions of the CJEU might inspire politicians to take action. That way, this wave of court cases may trigger a much more profound reform of the governance of the beautiful game.    

[1] In that sense AG Szpunar seems to go too far when in his answer to the court he suggests to invalidate the current HGP rule and already advises how the new rule should look – the latter is more a matter for the regulator.

Time to focus on freedom of expression: Rainbows, armbands, and FIFA’s commitment to human rights - By Prof. Mark James (Manchester Metropolitan University)

Editor's note: Mark James is Professor of Sports Law at Manchester Metropolitan University and the author of a leading Sports Law textbook.


The opening days of the FIFA World Cup Qatar 2022 have already resulted in a number of issues of interest to sports lawyers and human rights lawyers, with FARE’s Piara Powar claiming that this is the most political major sporting event that he has attended. Both FIFA and the local organisers have been active in their suppression of expressions of support for LGBTQIA+ rights by players, fans and journalists alike, calling into question once again the legality of restricting free speech by sporting rules and regulations.

There have been two major flashpoints to date. First, seven European federations had asked FIFA for permission for their captains to wear armbands supporting the ‘OneLove’ campaign. FIFA’s response was to refuse, resulting in the German players covering their mouths for their pre-match photographs in protest at their being silenced. There are several grounds on which FIFA would seek to support its position:

  •  Law 4.5 of the Laws of the Game prohibits any playing equipment from carrying any political, religious or personal slogans, statements or images.
  • Regulation 4.3.1 of FIFA’s Equipment Regulations and Regulation 27.1 of the FIFA World Cup 2022 Regulations prohibits clothing or equipment that includes political, religious, or personal slogans, statements, or images, or otherwise does not comply in full with the Laws of the Game.
  • Regulation 33.3 of the FIFA World Cup 2022 Regulations prohibits the display of political, religious or personal messages or slogans of any nature in any language or form by players and officials.
  • Regulation 13.8.1 of FIFA’s Equipment Regulations states that for FIFA Final Competitions, the captain of each Team must wear the captain’s armband provided by FIFA (all Regulations available in the FIFA Legal Handbook 2022).

Although the DFB is considering a challenge to FIFA’s refusal to allow its captain to wear the OneLove armband, which would ultimately be heard before CAS, it is unlikely to succeed in the face of the strict requirements of the above Laws and Regulations. However, what could cause more difficulty for both FIFA and CAS is if the DFB frames its case as a challenge to the compliance of the rules that restrict players’ freedom of expression with Article 3 of FIFA’s Statutes, which states that ‘FIFA is committed to respecting all internationally recognised human rights.’ Article 3, together with the additional detail provided by FIFA’s Human Rights Policy, ensures that freedom of expression as defined in Article 19 of the Universal Declaration of Human Rights and Article 10 of the European Convention on Human Rights are limitative rules that can be applied directly to FIFA’s activities, as has been argued by Bützler and Schöddert. Further, if the affected players and associations can define themselves as human rights defenders, then Article 11 of FIFA’s Human Rights Policy states that, ‘FIFA will respect and not interfere with the work of … human rights defenders who voice concerns about adverse human rights impacts relating to FIFA.’ Any challenge using this approach would be the first real test of the enforceability of the human rights protections to which FIFA claims to be committed. It would also be a test of CAS’s ability to require adherence to the human rights commitments made by ISFs and to prove that they are more than simple window-dressing.

Secondly, members of The Rainbow Wall, a contingent of LGBTQIA+ rights-supporting Welsh fans, were prevented from entering the Ahmed bin Ali stadium whilst wearing bucket hats incorporating a rainbow into its design. No explanation for why was given, however, FIFA and the local organisers would argue that openly supporting LGBTQIA+ rights with the aim of promoting legal change in a country where homosexuality is illegal is a political statement on apparel and therefore entry into the stadium wearing the rainbow hat is in breach of the Regulation 3.1.23 of the Stadium Code of Conduct. A similar argument could be used to justify preventing US journalist Grant Wahl from entering the stadium wearing a t-shirt incorporating a rainbow into its design and Danish journalist Jon Pagh from wearing the OneLove armband. However, it must be stressed that no such explanation for the prohibitions applied to these garments was provided to any of the affected fans or journalists. It must also be recognised that the opinion that promoting LGBTQIA+ rights is a political expression is highly contested. In a statement from FIFPRO, the opposing view was stated succinctly: ‘We maintain that a rainbow flag is not a political statement but an endorsement of equality and thus a universal human right.’

It is clear that, as with Rule 50 of the Olympic Charter, the chilling effect that FIFA’s Regulations have on players’ and fans’ freedom of expression is likely to be unlawful, as has been discussed at length both on this blog and on the Verfassungsblog Debate on Freedom of Expression in the Olympic Movement. Instead of revisiting these arguments, which are taken to apply to FIFA’s actions at Qatar 2022, two additional issues related to the FIFA Statutes are explored here.

Articles 3 and 4 of FIFA’s Statutes state that:

3 Human rights

FIFA is committed to respecting all internationally recognised human rights and shall strive to promote the protection of these rights.

4 Non-discrimination, equality and neutrality

4.1 Discrimination of any kind against a country, private person or group of people on account of race, skin colour, ethnic, national or social origin, gender, disability, language, religion, political opinion or any other opinion, wealth, birth or any other status, sexual orientation or any other reason is strictly prohibited and punishable by suspension or expulsion.

FIFA is a long-time supporter of pride events and in its press release for Pride Month 2022 stated:

[The] FIFA World Cup Qatar 2022™ will be a celebration of unity and diversity – a joining of people from all walks of life – regardless of race, ethnicity, religion, age, disability, sex characteristics, sexual orientation, gender identity and expression – everybody will be welcome.

Claims that all staff involved in the Qatar 2022 including public and private security forces, would be trained on how to accomplish their tasks in a non-discriminatory manner, seem not to have been operationalised effectively.

This begs the question whether FIFA is in breach of its own Statutes by refusing to allow players to express themselves freely on armbands and failing to protect fans’ freedom of expression by wearing rainbows. At the very least, FIFA should have ensured that a protective LGBTQIA+ regime in the stadiums and the fan zones during the World Cup was implemented to enable the ‘celebration of unity and diversity’ it claims that Qatar 2022 should be. FIFA’s actions in Qatar call into question its claims to be an inclusive and supportive leader on anti-discrimination and human rights, and is likely to see a backlash from the LGBTQIA+ community that it claims to support when it engages with Pride 2023; accusations of hypocrisy and virtue signalling are guaranteed.

With no resolution to the debate at the time of writing, Articles 3 and 4 could provide players and fans with the opportunity to demonstrate their support for human rights and anti-discrimination causes. At the Sochi 2014 Winter Olympics, Athlete Ally developed the ‘Principle 6 Campaign.’ Instead of criticising directly Russia's so called anti-gay laws, which are currently in the process of being extended, athletes promoted Principle 6 of the Olympic Charter, which at the time stated that, ‘Any form of discrimination with regard to a country or a person on grounds of race, religion, politics, gender or otherwise is incompatible with belonging to the Olympic Movement.’ The eventual outcome of this campaign was the addition of sexual orientation to the list of characteristics protected by Principle 6. Unlike at Sochi 2014, there is no need to campaign for a change to either of Articles 3 or 4 of the FIFA Statutes; instead, activists want to ensure that they are being applied. An immediate response for both players and fans would be for them to quote specifically from Articles 3 and 4, as it would be extremely difficult for FIFA to claim that they are making political or personal statements when promoting FIFA’s own foundational values. A creative reminder of what FIFA claims to stand for could enable player and fan activism to continue throughout the tournament, and beyond, whilst affected players and associations can develop a compelling case for the restrictions on freedom of expression to be struck out by CAS, the Swiss Federal Tribunal and/or the European Court of Human Rights.

Reactions of International Sport Organisations to the Russian Invasion of Ukraine: An Overview - By Daniela Heerdt & Guido Battaglia

Editor's note:

Daniela is a researcher at the Asser Institute in the field of sport and human rights. She has a background in public international law and human rights law and defended her PhD project entitled “Blurred Lines of Responsibility and Accountability – Human Rights Abuses at Mega-Sporting Events” in April 2021 at Tilburg University. She also works as independent consultant in the field of sport and human rights for the Centre for Sport and Human Rights, or the European Parliament among other clients from the sports ecosystem

As Head of Policy and Outreach, Guido is in charge of the Centre for Sport & Human Rights engagement with governments, international and intergovernmental organisations and sports organisations. He represents the Centre at conferences, events and bilateral dialogues to reach new audiences and partners and raise public awareness and understanding of the Centre’s work .



On February 24, 2022, the Russian military invaded Ukrainian territory. What followed was an escalation of the war, day by day, causing thousands of victims and forcing millions of people to flee. On March 2, the UN General Assembly overwhelmingly adopted a resolution deploring "in the strongest possible terms" Russia's aggression against Ukraine by a vote of 141 to 5, with 35 abstentions. On March 29, Russian and Ukrainian representatives met in Istanbul for another round of negotiations. No ceasefire has been agreed and hostilities continue.

Many states, international organizations and corporations quickly took measures in response to this invasion. Hundreds of companies decided to withdraw from Russia. Some countries decided to strengthen economic sanctions against Russia and Belarus and to provide military and economic help to Ukraine. Many civil society actors mobilised to organize and provide humanitarian support for Ukraine. Interestingly, international sports organisations like the International Olympic Committee (IOC), the Fédération Internationale de Football Association (FIFA), World Athletics and many other international federations, issued statements condemning the invasion and imposed bans and sanctions on Russian and Belarussian sports bodies and athletes.

This blog post provides an overview of the measures adopted by a number of international sports federations (IFs) that are part of the Olympic Movement since the beginning of the war and analyses how they relate to the statements issued by the IOC and other sanctions and measures taken by international sports organisations in reaction to (geo)political tensions and conflict.

More...





12th round of Caster Semenya’s legal fight: too close to call? - By Jeremy Abel

Editor's note: Jeremy Abel is a recent graduate of the LL.M in International Business Law and Sports of the University of Lausanne.

 

1.     Introduction

The famous South African athlete Caster Semenya is in the last lap of her long legal battle for her right to run without changing the natural testosterone in her body. After losing her cases before the Court of Arbitration for Sport (CAS) and the Swiss Federal Tribunal, she filed an application before the European Court of Human Rights (Court). In the meantime, the Court has released a summary of her complaint and a series of questions addressed to the parties of the case.

As is well known, she is challenging the World Athletics’ Eligibility Regulations for the Female Classification (Regulations) defining the conditions under which female and intersex athletes with certain types of differences of sex development (DSDs) can compete in international athletics events. Despite the Regulations emanating from World Athletics, the last round of her legal battle is against a new opponent: Switzerland.

The purpose of this article is to revisit the Semenya case from a European Convention on Human Rights (ECHR) perspective while considering certain excellent points made by previous contributors (see here, here and here) to this blog. Therefore, the blog will follow the basic structure of an ECHR case. The following issues raised by Semenya shall be analysed: the applicability of the ECHR, Semenya’s right to private life (Article 8 ECHR) and to non discrimination (Article 14 ECHR), as well as the proportionality of the Regulations. More...


Investment in Football as a Means to a Particular End – Part 2: The Multiple Layers of Multi-Club Ownership Regulation in Football - By Rhys Lenarduzzi

Editor's note: Rhys was an intern at the T.M.C. Asser Institute. He now advises on investments and Notre acquisitions in sport (mainly football) via Lovelle Street Advisory. Following a career as a professional athlete, Rhys has spent much of his professional life as an international sports agent, predominantly operating in football. Rhys has a Bachelor of Laws (LL.B) and a Bachelor of Philosophy (B.Phil.) from the University of Dame, Sydney, Australia. He is currently completing an LL.M at the University of Zurich in International Business Law / International Sports Law.


Having looked at the different types of investors in football in part one of this two-part blog series, “A non-exhaustive Typology”, it is fitting to now consider the regulations that apply to investors who seek to build a portfolio of football clubs.

One way to measure the momentum of a particular practice and how serious it ought to be taken, might be when that practice earns its own initialism. Multi-club ownership or MCO as it is increasingly known today, is the name given to those entities that have an ownership stake in multiple clubs. Within the little research and writing that has been undertaken on the topic, some authors submit that investors with minority stakes in multiple clubs ought not to be captured by the MCO definition.  This position appears problematic given some of the regulations draw the line at influence rather than stake.

There are now approximately 50 MCO’s across the football world that own approximately 150 clubs.[1] Given the way MCO is trending, one might consider it important that the regulations keep up with the developing MCO practice, so as to ensure the integrity of football competitions, and to regulate any other potentially questionable benefit an MCO might derive that would be contrary to football’s best interests.

In this blog, I focus on the variety of ways (and levels at which) this practice is being regulated.  I will move through the football pyramid from member associations (MA’s) to FIFA, laying the foundations to support a proposition that FIFA and only FIFA is positioned to regulate MCO. More...


WISLaw Blog Symposium - Rule 40 of the Olympic Charter: the wind of changes or a new commercial race - By Rusa Agafonova

Editor's note: Rusa Agafonova is a PhD Candidate at the University of Zurich, Switzerland   

The Olympic Games are the cornerstone event of the Olympic Movement as a socio-cultural phenomenon as well as the engine of its economic model. Having worldwide exposure,[1] the Olympic Games guarantee the International Olympic Committee (IOC) exclusive nine-digit sponsorship deals. The revenue generated by the Games is later redistributed by the IOC down the sports pyramid to the International Federations (IFs), National Olympic Committees (NOCs) and other participants of the Olympic Movement through a so-called "solidarity mechanism". In other words, the Games constitute a vital source of financing for the Olympic Movement.

Because of the money involved, the IOC is protective when it comes to staging the Olympics. This is notably so with respect to ambush marketing which can have detrimental economic impact for sports governing bodies (SGBs) running mega-events. The IOC's definition of ambush marketing covers any intentional and non-intentional use of intellectual property associated with the Olympic Games as well as the misappropriation of images associated with them without authorisation from the IOC and the organising committee.[2] This definition is broad as are the IOC's anti-ambush rules.More...

WISLaw Blog Symposium - Freedom of Expression in Article 10 of the ECHR and Rule 50 of the IOC Charter: Are these polar opposites? - By Nuray Ekşi

Editor's note: Prof. Dr. Ekşi is a full-time lecturer and chair of Department of Private International Law at Özyeğin University Faculty of Law. Prof. Ekşi is the founder and also editor in chief of the Istanbul Journal of Sports Law which has been in publication since 2019.


While Article 10 of the European Convention on Human Rights (‘ECHR’) secures the right to freedom of expression, Rule 50 of the Olympic Charter of 17 July 2020 (‘Olympic Charter’) restricts this freedom. Following the judgments of the European Court of Human Rights (‘ECtHR’) relating to sports, national and international sports federations have incorporated human rights-related provisions into their statutes and regulations. They also emphasized respect for human rights. For example, Article 3 of the Fédération Internationale de Football Association (‘FIFA’) Statutes, September 2020 edition, provides that “FIFA is committed to respecting all internationally recognised human rights and shall strive to promote the protection of these rights”. Likewise, the Fundamental Principles of Olympism which are listed after the Preamble of the of the Olympic Charter 2020 also contains human rights related provisions. Paragraph 4 of Fundamental Principles of Olympism provides that the practice of sport is a human right. Paragraph 6 forbids discrimination of any kind, such as race, colour, sex, sexual orientation, language, religion, political or other opinion, national or social origin, property, birth or other status. In addition, the International Olympic Committee (‘IOC’) inserted human rights obligations in the 2024 and 2028 Host City Contract.[1] The IOC Athletes’ Rights and Responsibilities Declaration even goes further and aspires to promote the ability and opportunity of athletes to practise sport and compete without being subject to discrimination. Fair and equal gender representation, privacy including protection of personal information, freedom of expression, due process including the right to a fair hearing within a reasonable time by an independent and impartial panel, the right to request a public hearing and the right to an effective remedy are the other human rights and principles stated in the IOC Athletes’ Rights and Responsibilities Declaration. Despite sports federations’ clear commitment to the protection of human rights, it is arguable that their statutes and regulations contain restrictions on athletes and sports governing bodies exercising their human rights during competitions or in the field. In this regard, particular attention should be given to the right to freedom of expression on which certain restrictions are imposed by the federations even if it done with good intentions and with the aim of raising awareness. More...


Asser International Sports Law Blog | Reflecting on Athletes' Rights on the Road to the Olympic Games: The Unfortunate Story of Nayoka Clunis - By Saverio Paolo Spera and Jacques Blondin

Asser International Sports Law Blog

Our International Sports Law Diary
The Asser International Sports Law Centre is part of the T.M.C. Asser Instituut

Reflecting on Athletes' Rights on the Road to the Olympic Games: The Unfortunate Story of Nayoka Clunis - By Saverio Paolo Spera and Jacques Blondin

Editor's note: Saverio Paolo Spera is an Italian qualified attorney-at-law. He holds an LL.M. in international business law from King’s College London. He is the co-founder of SP.IN Law, a Zurich based international sports law firm. Jacques Blondin is an Italian qualified attorney, who held different roles at FIFA, including Head of FIFA TMS and Head of FIFA Regulatory Enforcement. He is the co-founder of SP.IN Law. The Authors wish to disclaim that they have represented Ms. Nayoka Clunis before the Court of Arbitration for Sport in Lausanne in the context of the proceedings which led to the Award of 31 July 2024.

 

  

Every four years since more than a century,[1] a spectacular display of sportsmanship takes place over the course of a few weeks during the summer: the Olympic Games.[2]

         For thousands of athletes around the globe, the Olympic Games are “the pinnacle of success and the ultimate goal of athletic competition”.[3] In their quest to compete in the most important stage of their sport, they endure demanding and time-consuming efforts (often including considerable financial sacrifices). These endeavours occasionally lead to everlasting glory (the exploits of athletes of the calibre of Carl Lewis, or more recently, Usain Bolt[4] still resonate among sports’ observers), more often to a shorter gratification. Whether their gestures end up going down the sport’s history books or last the span of a few competitions, athletes are always the key actors of a magnificent event that continues to feed the imagination of generations of sports fans. 

And yet, situations may occur when athletes find themselves at the mercy of their respective federations in the selection process for the Olympic Games and, should the federations fail them (for whatever reason), face an insurmountable jurisdictional obstacle to have their voice heard by the only arbitral tribunal appointed to safeguard their rights in a swift and specialised manner: the Court of Arbitration for Sport (the “CAS”).[5]

This is the story of Nayoka Clunis, a Jamaican world class hammer throw athlete who had qualified for the Olympic Games of Paris 2024 and yet, due to no fault of her own, could not participate in the pinnacle of competitions in her sport. Though eligible in light of her world ranking, she was failed by her own federation[6] [AD1] [SPS2] and ultimately found herself in the unfortunate – but legally unescapable – vacuum whereby neither the CAS Ad Hoc Division in Paris nor the ‘regular’ CAS division in Lausanne had jurisdiction to entertain her claim.  

The aim of this paper is not to discuss whether Ms. Clunis would have had a chance to successfully prove her claims and compete in Paris had her case been heard on the merits, nor to debate about the appropriateness of a national federation’s selection process (also because Ms. Clunis never challenged it, having been eligible ‘from day one’).[7] Retracing the story of a sportswoman’s dramatic misfortune, this paper aims at providing an opportunity to reflect on how effective the safeguard of athletes’ rights in the context of the Olympic Games actually is. 

 

1.  The CAS Ad Hoc Division and its jurisdiction

Since the Olympic Games of Atlanta 1996, the CAS has established an Ad Hoc division for the summer and winter Olympic Games.[8]

The idea of having a specialised dispute resolution avenue in loco capable of rendering specialised and extremely fast-paced decisions, thus guaranteeing the integrity of the competition and athletes’ rights, was praised by the Swiss Federal Tribunal since the early days.[9] The Ad Hoc Division was elegantly defined as “a fruitful, albeit challenging avenue to resolve in a denationalized process […] highly emotional controversies”.[10]

Its success lies in the technical preparation of the appointed arbitrators and the promptness of its decision-making. It is structured in a way that allows panels (of expert arbitrators) to render decisions in a matter of days, sometimes hours.[11] In order to facilitate the start of the procedure, considering the urgency of the matters, a pre-established application form is published on the CAS website.[12] Immediately upon receipt of the application, the President of the Ad Hoc Division (appointed by the ICAS, as the rest of the arbitrators) appoints the panel and designate the president (or appoints a sole arbitrator, as deemed fit).[13] In cases of extreme urgency, the panel can order the stay of the challenged decision inaudita altera partem.[14]

Many cases filed at the Ad Hoc Division, however, never reach the stage of a discussion on their merits.[15] This is due to the fact that the Ad Hoc Division has jurisdiction only insofar as the prerequisites established at Article 61(2) Olympic Charter[16] and Article 1 Arbitration Rules applicable to the CAS Ad Hoc Division for the Olympic Games[17] are met. The two rules combined provide that in order for the Ad Hoc Division to have jurisdiction: (i) the dispute must have arisen during the Olympic Games or in connection with the Olympic Games, as long as it is during the 10 days preceding the opening ceremony of the Olympic Games, and (ii) the applicant must have exhausted the internal remedies available, unless doing so would render the appeal ineffective. 

On more than one instance over the years, the so called ’10-day rule’ revealed to be “a vexing issue”.[18] Indeed, it is not always easy for a panel to identify when a dispute arises. This is particularly true for eligibility matters, which can sometimes comprise a number of steps and communications (or resolutions) from national and international federations, each potentially identifiable as giving cause to the dispute.[19] Moreover, these disputes sometimes originate a few weeks prior to the opening ceremony of the Olympic Games[20] and they can cause protracted exchanges of correspondences between the parties involved, the last of which might end up inside the 10-day limit.[21]

The fact that the most problematic jurisdictional issue arises precisely in what are considered to be the most delicate matters brought before the attention of Ad Hoc panels[22] is somewhat troublesome. 

As will be seen, the one concerning Ms. Clunis was a case in point. 

 

2. The selection process which led to Ms. Clunis’ exclusion 

The facts of the case are relatively straightforward. On 20 December 2022, World Athletics (“WA”) published its qualifying system for the Paris 2024 Olympic Games pursuant to which, inter alia, the hammer throw event would have 32 entries each for men’s and women’s categories. The qualification for these spots were assigned by Entry Standard or World Ranking. On 19 June 2024, WA informed Member Federations, inter alia, that (i) athletes not included in the Event Entry System (the “EES”) would not be considered for Paris 2024, setting 4 July 2024 midnight Monaco time as deadline for the entries and (ii) unused quotas would be reallocated to the next best available athletes by world ranking.

On 1 July 2024, the Jamaica Athletic Administrative Association (the “JAAA”) made 89 pre-entries. The day after, WA confirmed the list of athletes who qualified by Entry Standard and World Ranking. Due to her ranking (23rd in the world), Ms. Clunis was identified as eligible for nomination. At the same time, WA reminded the Member Federations to submit the pre-entries through the EES by the 4 July deadline.

On 3 July 2024, the JAAA informed Ms. Clunis that, based on her ranking, she had been selected to compete at the Paris Olympic Games. On the same day, Hurricane Beryl hit Jamaica.[23] On 4 July 2024, the JAAA submitted the pre-entries on the EES, however without including Ms. Clunis. 

On 5 July 2024, WA reallocated and offered the unused quota to the next best ranked athlete for hammer throw, Ms Iryna Klymets from Ukraine, who accepted. On the same day, WA informed Member Federations and the IOC of the athletes ultimately considered for Paris. The list did not include Ms. Clunis. 

On 6 July 20224, the JAAA President contacted WA “seeking assistance in adding hammer thrower Nayoka Clunis as a Quota Athlete”, explaining that her name was not inserted due to the disarray caused by Hurricane Beryl.[24] On the same day, WA published the final list of athletes who would compete at the Paris Olympic Games and Ms. Clunis was informed by her coach that she was not one of them. 

On 8 July 2024, WA submitted the list of participating athletes to the IOC, which did not include Ms. Clunis. On the same day, in reply to the request for assistance, the Director of Competitions and Events Department of WA informed the JAAA that it was no longer possible to guarantee Ms. Clunis’ participation in the upcoming games but that she would be considered before any other in case of any cancellation or withdrawal in the women’s hammer throw prior to the beginning of the games. In response, the JAAA thanked for the assistance offered and “remain[ed] hopeful that eventually she [would] be added” in case of withdrawals.[25]

On 15 July 2024, the JAAA President wrote to WA to inform about the athlete’s severe emotional distress and asking that she be included in the list of athletes even in the absence of withdrawals or cancellations. The day after, Ms. Clunis was informed that there were no updates from WA and she resolved herself to bring the matter to the CAS.

 

3. The jurisdictional barrier 

On 18 July 2024, Ms. Clunis filed an application at the Ad Hoc division in Paris in order to try and remedy JAAA’s mistake and get a spot at the Olympic Games. The appointed panel, however, found not to have jurisdiction to entertain her claim. 

On 25 July 2024, Ms. Clunis seized the ‘regular’ CAS division in Lausanne with the same aim, however also with the same result: the sole arbitrator found not to have jurisdiction to entertain her claim. 

 

3.1. The CAS Ad Hoc Division lacked jurisdiction due to the timing of the events

Ms Clunis could not avail herself of the Paris Ad Hoc Division because the decision concerning her eligibility had been issued ‘too early’. 

As explained, the Ad Hoc Division has jurisdiction to entertain disputes covered by Article 61 Olympic Charter only insofar as they arise during the Olympic Games or during a period of ten days preceding the Opening Ceremony of the Olympic Games. 

The opening ceremony for the Paris Olympic Games was 26 July 2024. Ms Clunis’ dispute, however, arose before 16 July 2024. Though when filing her application at the Ad Hoc Division Ms Clunis had not identified the challenged decision,[26] the appointed panel determined that, whichever communication had to be intended as giving rise to the dispute, that communication did not ground the AD Hoc Division’s jurisdiction anyway as dated before 16 July 2024 (indeed, her name had been omitted from the list sent to WA on 4 July 2024; she was informed by the JAAA that her name was not on the list sent to WA by the JAAA on 7 July and WA informed the JAAA that her name could not be added to the list of competitors on 8 July 2024). 

Hence, the panel in Paris did not need to resolve the uncertainty as to when exactly the dispute arose (i.e., whether it was when Ms. Clunis became aware that her name had not been included on the list submitted by the JAAA to WA or when she first became aware that the mistake would not be rectified by the latter) as in any case it was before the 10 days prior to the Opening Ceremony of the Paris Olympic Games.[27]

As the ‘10-day rule’ had not been met, the panel did not have to assess whether there was jurisdiction under Article 61 Olympic Charter either.[28]

While fully recognising the unfairness to Ms. Clunis, and the impact on her being deprived of the opportunity to participate in the Paris Olympic Games, the panel was bound to declare that the Ad Hoc Division did not have jurisdiction to entertain her claim.[29]

 

3.2. The CAS ‘regular’ division did not have jurisdiction with respect to WA

In her second (and last) attempt to have her case urgently heard by an arbitral tribunal, Ms. Clunis seized the CAS ‘regular’ division in Lausanne against the decision of WA’s Director of Competitions and Events Department of 8 July 2024, proposing an ultra-expedited procedure (accepted only by the IOC and WA but not by Ms. Iryna Klymets and the Ukrainian Athletic Association). In this context, Ms. Clunis claimed that WA had the possibility to include her name in view of the exceptionality of the circumstances and that its decision not to do so severely affected her position (rather than JAAA’s). Hence, any determination that CAS lacked jurisdiction to hear her claim would amount to a denial of (access to) justice. 

The sole arbitrator appointed analysed all the pieces of WA legislation brought to his attention and concluded that the CAS had no jurisdiction ratione personae, nor ratione temporis or ratione materiae, as far as the Athlete’s position vis-à-vis WA was concerned. 

To start with, while recognising the CAS as a forum to submit claims involving WA, Article 84(2) [30] According to the WA Constitution, in other words, only the JAAA (and not Ms. Clunis) could have brought a claim to the CAS (Ordinary Division) against WA. Had the JAAA done so within 5 days from the event giving rise to the dispute,[31] the CAS would have had jurisdiction to analyse the merits of the matter.

The only piece of WA legislation which would have given the CAS jurisdiction ratione personae vis-à-vis WA was no longer applicable ratione temporis. In fact, while the 2019 edition of the WA Dispute Rules included a clause allowing athletes to seize the CAS directly,[32] the [33]

Ultimately, therefore, there was no provision in the entire WA regulatory framework providing for the jurisdiction of the CAS for the situation Ms. Clunis found herself in: an eligibility matter versus WA which arose prior to the 10 days preceding the opening ceremony of the Olympic Games. 

Moreover, Article 61(2) Olympic Charter, while arguably providing for jurisdiction ratione materiae for Olympic Games-related disputes,[34] did not provide CAS jurisdiction for a dispute between Ms. Clunis and WA either (the provision being found in the governing document of the IOC).[35]

 

3.3. The CAS ‘regular’ division did not have jurisdiction with respect to the IOC

The situation concerning CAS jurisdiction vis-à-vis the IOC was not any different.

Due to the fault of the JAAA, Ms. Clunis had never been invited to sign the Games Participation Agreement for the Olympic Games Paris 2024, which included an arbitration agreement with the IOC in favour of the CAS.[36]

In the absence of an arbitration agreement, the existence of which must not be accepted lightly pursuant to the jurisprudence of the Swiss Federal Tribunal (SFT),[37] the CAS could not have jurisdiction. At the same time, a systematic interpretation of Article 61(2) Olympic Charter would suggest not to construe the provision as awarding third parties the right to litigate the IOC before the CAS.[38]

 

4. Conclusions

Two separate CAS divisions fully recognised the injustice suffered by Ms. Clunis. 

The Ad Hoc division’s panel on 22 July 2024 appreciated “the unfairness to the Athlete of the events that have occurred and of the impact on her of being deprived of the opportunity to compete in the Paris Olympic Games”.[39] For his part, the sole arbitrator on 31 July 2024 recognised that what had been brought to his attention was “a very unfortunate case” whereby “a great injustice ha[d] been committed vis-à-vis the Appellant, a world-class, Olympic-level athlete who had qualified for the Olympic Games Paris 2024”.[40]

It was clear that Ms. Clunis suffered an incommensurable damage: she was inexplicably deprived of the recognition she had earned through years of hard work. Moreover, and this is the sad irony that prompted this paper, Ms. Clunis was an innocent victim of her federation’s negligence. 

Not only did the JAAA make the mistake of not inserting her name in the list within the prescribed deadline,[41] but, most importantly, it remained passive and let the deadline to bring a claim before the CAS expire (when it was the only entity having the possibility to do so as per the WA Constitution).[42] Ms. Clunis played no part in the events eventually causing her misfortune and yet she could not do anything about it, as she was “caught in an unfortunate legal position wherein she ha[d] no legal proximity to both WA and the IOC for her to appeal the case to the CAS and where she was not yet invited to sign the Games Participation Agreement (containing the CAS arbitration clause)”.[43]

The JAAA was the only culprit in this sad story.[44] However, what remains once the blame has been (rightfully) apportioned is a regulatory framework that cannot prevent a similar situation from occurring again. 

Indeed, the decisions of the Paris panel and the sole arbitrator were not discretionary. Their hands were tied by the rules: the existing regulatory framework and the timing of events determined that no CAS forum (neither the one in Paris nor the one in Lausanne) could possibly have jurisdiction to decide on the case and eventually remedy the injustice (were Ms. Clunis’ argumentation on the merits found to be solid, that is). Though Ms. Clunis was “bona fide endeavouring to seek meaningful recourse for an unfortunate situation that was entirely out of her control”,[45] her attempts were doomed to fail from the moment in which the deadline for the JAAA to bring a claim to the CAS had expired.

While it is true that the facts of the case were particularly exceptional (both the JAAA’s blatant mistake, possibly determined by the exceptional natural events which occurred in Jamaica prior and during the deadline day, and the timing of WA’s decision, issued too early to ground the Ad Hoc Division’s jurisdiction), it remains a regrettable state of affairs that if a dispute concerning an athlete’s eligibility arises earlier than  10 days before the opening ceremony of the Olympic Games, the relevant claim against WA can only be brought to the CAS by his/her federation (within 5 days). In every such situation, in other words, the athlete is at the mercy of the negligence of his/her federation, which has to: (i) first, do its job properly during the selection process and (ii) second, bring the claim against WA to the CAS Ordinary Division in a timely fashion (if the case warrants being litigated).

Hence, regardless of the peculiarities of Ms. Clunis’ case, this issue goes beyond the specifics of this case. Is it reasonable to leave the choice to contest a life-changing decision for an athlete in the hands of a party which is only indirectly affected by it (and which might have caused the issue, for instance by gross negligence, in the first place)? 

Last year, the JAAA might have suffered a damage having lost its most prominent athlete in the female hammer throw at the Olympic Games, but it only had itself to blame. Ms. Clunis lost the chance of a lifetime to shine on a global stage without having played any part in the mishap and, to add insult to injury, without having any possibility to have the CAS review the decision of the WA. In short, she was denied access to justice to challenge one of the, if not the, most consequential decisions of her life.  

This prompts a couple of observations. 

The first is that, had her incredible misadventure occurred on the road to Tokyo 2020 instead (i.e., under the aegis of the previous edition of the WA Dispute Rules), Ms. Clunis would have likely had a chance to have her claim heard on the merits. It is not clear why the WA Dispute Rules were revised in 2023 to the effect of eliminating the possibility for athletes to seize the CAS directly against WA (Circular M35/2, which accompanied the change, does not provide an explanation).[46] But given what has happened, it is legitimate to wonder whether this was a warranted amendment and whether it would not be advisable for WA to think about a regulatory ‘revival’ in this respect. 

The second observation concerns Article 1 Arbitration Rules applicable to the CAS Ad Hoc Division for the Olympic Games. The currently applicable version is the result of an amendment introduced following a bobsleigh case brought to the Ad Hoc Division at the Salt Lake City Winter Olympics of 2002.[47] At the time, according to said provision the Ad Hoc Division had jurisdiction only in the presence of an Entry Form for the Olympic Games.[48] The panel on that occasion observed that the construction of the provision could “give rise to unfairness and hardship for athletes claiming the right to be entered as competitors in Olympic Games”.[49] The rationale of the current compromise (i.e., the matter being at least in connection with the Olympic Games and arisen at least within 10 days before the opening ceremony), then, is to avoid the hardship that concerned the panel in Salt Lake City while at the same time avoiding to flood the Ad Hoc Division with every possible eligibility dispute.

It can be generally considered that eligibility matters are by definition in connection with the Olympic Games.[50] But is the 10-day prior to the opening ceremony of the Olympic Games a fair limit to meet in eligibility matters, considering that they can arise before[51]and that the most prominent international federation concerned does not provide (anymore) for CAS ('regular') jurisdiction in favour of athletes?

While respecting the need not to overwhelm the Ad Hoc Division with eligibility disputes, it would advisable to extend this limit when (and only when) the regulatory framework of the international association concerned does not provide for athletes’ recourse to the CAS ‘regular’ division (or, alternatively, it could be ensured that these associations have ‘late’ eligibility procedures, i.e., falling within the 10-day limit).[52] Such an amendment would fill a ‘regulatory gap’ without endangering the sustainability of the Ad Hoc system.[53]

The Olympic Charter expressly states that ‘‘[n]obody is entitled as of right to participate in the Olympic Games”.[54]

However, should not every athlete be entitled as of right to have at least one sports arbitral tribunal (be it the CAS Ordinary, Appeals or Ad Hoc Division) adjudicate whether his/her participation was rightfully denied or not?  

On 8 and 9 December 2014, the IOC Session held in Monaco approved the Olympic Agenda 2020 containing 20+20 Recommendations to shape the future of the Olympic Movement. One of these Recommendations had the purpose of strengthening support to athletes, advising the IOC to “put [their] experience at the heart of the Olympic Games” and “further invest in supporting [them] on and off the field of play”.[55]

Thanks to the work of the Ad Hoc Division, not just the experience but also the rights of athletes are at the heart of the Olympic Games. We believe their right to have access to justice ‘on the road’ to the Olympic Games should be equally guaranteed.


[1] Following the creation of the International Olympic Committee (IOC) on 1894 by Pierre de Coubertin, the first modern Olympic Games took place in Athens in 1896.

[2] Over the years, there were numerous changes to the Olympic Games. Amongst these, the introduction of the Winter Olympic Games (officially held for the first time in Chamonix 1924) and the Paralympic Games (officially held for the first time in Rome 1960 and in Seoul 1988 for the first time directly after the Summer Olympics using the same venues). 

[3] CAS 2011/O/2422, para. 40.

[4] Carl Lewis is widely recognised as one of the most accomplished Olympians of all times. He won 9 Olympic gold medals and 1 Olympic silver medals; he is one of six athletes to win a gold medal in the same individual event in four consecutive Olympic Games (long jump). Usain Bolt is widely considered the greatest sprinter of all times, having won 8 Olympic gold medals, still holding the world record in the 100m and 200m, being the only sprinter to have won the 100m and 200m distances in three consecutive Olympic Games. 

[5] The paper will refer to both the Ad Hoc Division and the Division (Ordinary or Appeals) seated in Lausanne. The latter will be referred to as the ‘regular’ division in order to differentiate it from the Ad Hoc Division.

[6] Whether due to force majeure or not was never decided by any arbitral panel and is, in any case, beyond the scope of this paper.

[7] For a comprehensive analysis of the issue, see A. DUVAL, ‘Getting to the games: the Olympic selection drama(s) at the court of arbitration for sport’, in Int Sports Law J (2016). 

[8] Since 2016, a CAS Anti-doping Division is established for each edition of the Olympic Games (i.e. also for the Winter Games).

[9] According to the Swiss Federal Tribunal (case Larissa Lazutina & Olga Danilova v. CIO, FIS & CAS of 27 May 2003): “In competitive sport, particularly the Olympic Games, it is vital both for athletes and for the smooth running of events, that disputes are resolved quickly, flexibly and inexpensively by experts familiar with both legal and sports-related issues […] Thanks in particular to the creation of ad hoc divisions, [the CAS] enables the parties concerned to obtain a decision quickly, following a hearing conducted by persons with legal training and recognized expertise in the field of sport, whilst protecting their right to a fair hearing”.

[10] A. DUVAL, ‘Getting to the games: the Olympic selection drama(s) at the court of arbitration for sport’ cit.

[11] See G. KAUFMANN-KOHLER, Arbitration at the Olympics. Issues of Fast-Track Dispute Resolution and Sports Law, The Hague, Kluwer, 2001.

[12] Article 10 Arbitration Rules applicable to the CAS Ad Hoc Division for the Olympic Games.

[13] Article 11 Arbitration Rules applicable to the CAS Ad Hoc Division for the Olympic Games.

[14] Article 14 Arbitration Rules applicable to the CAS Ad Hoc Division for the Olympic Games.

[15] From the information publicly available, in Paris 2024 the Ad Hoc Division declined jurisdiction due to the 10-day prerequisite not having been met in two cases (OG 24/01and OG 24/03).

[16] Article 61(2) Olympic Charter: “Any dispute arising on the occasion of, or in connection with, the Olympic Games shall be submitted exclusively to the Court of Arbitration for Sport, in accordance with the Code of Sports-Related Arbitration”.

[17] Article 1 Arbitration Rules applicable to the CAS Ad Hoc Division for the Olympic Games: “The purpose of the present Rules is to provide, in the interests of the athletes and of sport, for the resolution by arbitration of any disputes covered by Rule 61 of the Olympic Charter, insofar as they arise during the Olympic Games or during a period of ten days preceding the Opening Ceremony of the Olympic Games. In the case of a request for arbitration against a decision pronounced by the IOC, an NOC, an International Federation or an Organising Committee for the Olympic Games, the claimant must, before filing such request, have exhausted all the internal remedies available to her/him pursuant to the statutes or regulations of the sports body concerned, unless the time needed to exhaust the internal remedies would make the appeal to the CAS Ad Hoc Division ineffective”.

[18] OG 14/03 Maria Belen Simari Birkner v. Comité Olímpico Argentino (COA) & Federación Argentina de Ski y Andinismo (FASA). The panel in that instance held that “the date when a dispute arises is in general – in fact in most cases – the date of the decision with which the Applicant disagrees (“a disagreement on a point of law or fact” as stated by the ICJ). Such a date can arise later, in some cases, if, for example, the decision is not self-explanatory and requires some explanation in order for the Parties to know with certainty that they are in disagreement. Evidence would be required to establish whether a later date than the date of the decision should apply” (para. 5.28). In OG 06/002 Andrea Schuler v. Swiss Olympic Association & Swiss-Ski, the panel, confronted with a somewhat different factual scenario, had instead adopted a particularly flexible interpretation (paras. 13 – 14: ”Ms Schuler received a written explanation of her exclusion on 1 February 2006. […] It was open to Ms Schuler to accept the Swiss Olympic’s determination or decide to appeal. Accordingly, in the Panel’s opinion, it would not be possible to say that a dispute had arisen until Ms Schuler had decided to appeal and had filed notice of her appeal”). The Panel in OG 14/03 openly expressed its disagreement with the legal reasoning adopted in the Schuler case (OG 14/03, para. 5.26). For a deeper analysis of these issues, see A. DUVAL , ‘Getting to the games: the Olympic selection drama(s) at the court of arbitration for sport’cit. 

[19] See, inter alia, OG 14/03 cit., OG 24/01 discussed infra (this is Ms. Clunis’ case: the panel did not have to decide which communication constituted the event giving rise to the dispute as they were all outside of the limit), OG 24/02 (see footnote 21).

[20] In OG 24/03, the sole arbitrator denied jurisdiction as the application was directed against a decision of 24 May 2024 of the International Weightlifting Association, notifying the athlete that – due to his provisional suspension in relation to a previous doping violation – he had missed the mandatory event necessary to fulfill the minimum eligibility requirements (the opening ceremony being on 26 July 2024, the 10-day prerequisite had not been met by an abundant margin). 

[21] In OG 24/02, the sole arbitrator accepted jurisdiction because the international federation concerned (World Aquatics) had made it possible to meet the 10-day prerequisite by agreeing to reconsider the matter on various occasions (de facto rendering its previous decisions on the matter not final). 

[22] A. DUVAL, in ‘Getting to the games: the Olympic selection drama(s) at the court of arbitration for sport’ cit. notes that “a non-selection for the Olympic Games is often the toughest setback faced by an athlete in her career”.

[23] Hurricane Beryl was a category 5 hurricane which hit the Caribbean, the Yucatán Peninsula and the Gulf Coast of the United States between 28 June 2024 and 9 July 2024, reaching a peak of intensity on 2 July 2024 and hitting the south coast of Jamaica on 3 July 2024.  

[24] CAS 2024/A/10760, para. 17.

[25] CAS 2024/A/10760, para. 23.

[26] OG 24/01, para. 49.

[27] OG 24/01, para. 53.

[28] OG 24/01, para. 56.

[29] OG 24/01, para. 58.

[30] Article 84(2) WA Constitution: “In the event there is a dispute or difference between: a. a Member Federation or Member Federations and World Athletics; or b. an Area Association or Area Associations and World Athletics; that cannot be resolved as set out in Article 84.1, the matter will be submitted to arbitration before the CAS (Ordinary Arbitration Division), to the exclusion of any other court or forum, in accordance with Article 84.3, below. The CAS will resolve the dispute definitively in accordance with the CAS Code of Sports–related Arbitration”.

[31] Article 84(3) WA Constitution : “Any dispute submitted to the CAS under Article 84.2 must be filed either within five (5) days of the date of the dispute first arising or within five (5) days of any failure to resolve the dispute in accordance with Article 84.1(whichever the case may be)”. 

[32] Article 3.1. WA Dispute Rules (2019 ed.): “This Rule 3 relates to any legal dispute of any kind whatsoever arising between World Athletics on the one hand and any Member, Area Association, athlete, athlete support personnel or other person who is subject to the Constitution and/or any of the Rules or Regulations on the other hand, in relation to the Constitution and/or any Rule or Regulation and/or any World Athletics decision or act or omission, howsoever arising, that is not covered by the dispute resolution provisions of the Constitution or any Rules or Regulations (each, a "Dispute"). Subject to, and in accordance with Article 84 of the Constitution, a Dispute shall be submitted to arbitration before the CAS (Ordinary Arbitration Division or Appeal Arbitration Division, depending on the circumstances of the case), to the exclusion of any other court or forum. The CAS will hear and determine the Dispute definitively in accordance with relevant provisions of the CAS Code of Sports-Related Arbitration. The law governing the Dispute will be the Constitution and Rules and Regulations, with the laws of Monaco applying subsidiarily. Unless the parties agree otherwise, the arbitration proceedings before the CAS will be conducted in the English language before a Panel consisting of three arbitrators. Pending determination of the Dispute by the CAS, any provision of the Constitution or Rule or Regulation or decision or act or omission under challenge will remain in full force and effect unless the CAS orders otherwise. The ultimate decision of the CAS on the merits of the Dispute will be final and binding on all parties, and all parties waive irrevocably any rights they might otherwise have to any form of appeal, review or other challenge in respect of that decision, except as set out in Chapter 12 of Switzerland’s Federal Code on Private International Law”.

[33] Article 9 Disciplinary and Appeals Tribunal Rules: “The Disciplinary and Appeals Tribunal and Disciplinary Panel shall have jurisdiction to hear and decide any alleged Non-Doping Violations over which jurisdiction is conferred on it by the Integrity Code of Conduct and the Integrity Unit Rules and any Preliminary Proceeding under the Reporting, Investigation and Prosecution Rules – Non-Doping”. Article 16 Disciplinary and Appeals Tribunal Rules: “16.2 Subject to Rule 16.1, a decision of the Disciplinary Panel under these Rules may be appealed to CAS by a party to the proceedings before the Disciplinary Panel, in accordance with this Rule 16. […] The deadline for filing an appeal to CAS will be 21 days from the date of receipt of the written decision in question by the appealing party. Where the appellant is a party other than World Athletics, to be a valid filing under this Rule a copy of the appeal must also be filed on the same day with the Integrity Unit. The decision being appealed will remain in full force and effect pending determination of the appeal unless CAS orders otherwise”.

[34] CAS 2024/A/10760, para. 99.

[35] Article 61(2) Olympic Charter: “Any dispute arising on the occasion of, or in connection with, the Olympic Games shall be submitted exclusively to the Court of Arbitration for Sport, in accordance with the Code of Sports-Related Arbitration”.

[36] Article 7(1) of the Games Participation Agreement: “The Court of Arbitration for Sport is exclusively competent to finally settle all disputes arising in connection with my participation in the Games”.

[37] According to the SFT (SFT 4A_124/2020, consid. 3.1.2), the parties’ will to resort to arbitration must be clear and unequivocal as such consent is a waiver of the right to involve otherwise competent state courts. Though beyond the scope of this paper, one might perhaps wonder whether this should be intended as applicable to arbitration tout court or whether a distinction should be made between voluntary and mandatory arbitration in the sense of Pechstein…in other words, do athletes on the road to the Olympic Games realistically waive the jurisdiction of domestic courts for urgent eligibility matters in favour of the CAS (put it differently, do they have de facto a realistic alternative to the CAS)?  

[38] In order not to have the IOC entering, de facto, “into innumerable legal relationships with an unmanageable number of persons” (CAS 2024/A/10760, para. 108).

[39] OG 24/01, para. 58.

[40] CAS 2024/A/10760, para. 109.

[41] As mentioned, it is beyond the purpose of this paper to discuss whether the JAAA’s mistake could be entirely ascribed to the impact of Hurricane Beryl.

[42] CAS 2024/A/10760, para. 109 : “The entity having caused the problems, the JAAA, only took belated and inefficient steps to remedy the damage caused to the Appellant”.

[43] CAS 2024/A/10760, para. 109.

[44] Which, however, cannot possibly repay the damage suffered.

[45] CAS 2024/A/10760, para. 115.

[46] The Circular is not publicly available. However, it was produced in the context of the arbitral proceedings CAS 2024/A/10760 (paras. 84 – 87).

[47] OG 02/005 Troy Billington v. Fédération internationale de Bobsleigh et de Tobogganing (FIBT).

[48] The provision read as follows: “The purpose of the present Rules is to provide, in the interests of the athletes and of sport, for the resolution by arbitration of any disputes covered by Rule 74 of the Olympic Charter and by the arbitration clause inserted in the entry form for the Olympic Games (the “OG”), insofar as they arise in the host country of the OG between 1 February 2002, and 24 February 2002”

[49] OG 02/005, para. 24.

[50] A. RIGOZZI, ‘The Decisions Rendered by the CAS Ad Hoc Division at the Turin Winter Olympic Games 2006’, in Journal of International Arbitration 23(5): 453–466, 2006

[51] See footnotes 19 – 21. 

[52] Though it shall not be forgotten that a recourse to the CAS ‘regular’ division entails costs that the Ad Hoc Division does not have and that, in the ‘regular’ context, an expedited procedure is not implemented unless agreed with the counterparties. Hence, a certain inequality between athletes who can refer to the Ad Hoc Division and athletes who have only recourse to the ‘regular’ division would persist.

[53] The problem would be solved altogether if the 10-day requirement were to be interpreted in the sense that the dispute arises when the claim is submitted. This would however mean a foreseeable increase in the workload of the Ad Hoc divisions.

[54] Article 44(3) Olympic Charter. 

[55] See A. DUVAL cit.


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