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The Shadow Proclamation is both a compact or treaty related to Galactic Law, and the governing body of said compact or treaty. The purpose of the Proclamation is to govern how different civilisations interact with one another.
The Doctor used Convention 15 of the Shadow Proclamation to gain an audience with the Nestene Consciousness, for the purposes of negotiating an end to the Autons' attempted takeover of earth. (DW: Rose)
In the second issue of the American comic book, it is explained that the Egyptian god Bast is in fact an alien creature named Bubastion, sent to ancient Earth to guide Egypt as the god Bast. When he was tricked into murdering an innocent man, he was sealed in the body of a cat for failing to protect humanity, as per the Shadow Proclamation. The Doctor suggested reciting certain parts of the Proclamation would give him certain power over Bubastion.
According to the Doctor, the breeding of Adipose children on Earth was a violation of the Proclamation since the "seeding" of Level 5 planets was prohibited. Miss Foster, the woman in charge of the breeding program, was concerned that the Doctor had alerted the Shadow Proclamation to her activities. (DW: Partners in Crime)
- Captain Jack's Monster Files, on the official BBC website, referenced the Shadow Proclamation having arrested the Adipose First Family (who were behind the breeding program) and taken custody of the children.
Upon discovering that aliens were at work in 1st century Pompeii, The Doctor demanded that the alien identify its place of origin and species designation "as set down by the Shadow Proclamation". (DW: The Fires of Pompeii)
Since the Shadow Proclamation has only been referenced in conjunction with Earth, it is likely the Proclamation exists to regulate contact between alien races and civilisations that are not aware of or have not become part of the galactic community, such as Earth up to (at least) the early 21st century.
Other references
- Rose Tyler tried unsuccessfully to bluff the leader of the Sycorax by mentioning the Shadow Proclamation, in a jumbled way. (DW: The Christmas Invasion)