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EC RECEIVED APR 1 6 2014 /lf- o SI.>:f EXBCtJTI'VEdm at OPTIIESECRET ARY-G.BNERAI, 14 April2014 ACTION M The Honourable Ban Ki-moon Secretary-General COPY D sf:, United Nations Headquarters c_cL c.... 2 United Nations Plaza £-s New York, New York 10017 United States of America AG The Reqm:st by Palestinian Officials to Join UN Agencies and Accede ro International Conventions Your Excellency: By way of introduction, the European Centre for Law and Justice ("ECLJ") is an international, Non-Governmental Organisation ("NGO"), dedicated, inter alia, to the promotion and protection of human rights and to the fu rtherance of the rule of law in international affairs. The ECLJ has held Special Consultative Status before the United Nations/ECOSOC since 200i. Recently, Palestinian Authority (PA) President Mahmoud Abbas submitted a series of letters to various UN agencies as well as to officials of Switzerland and the Netherlands requesting that "Palestine" be admitted to the respective UN agency or that "Palestine" be permitted to accede to the respective convention or treaty2• By submitting such requests, President Abbas is attempting to obtain recognition of Palestinian statehood "through the back door" by circumventing the provisions of solemn treaties which the PA entered into in the past. Such a manoeuvre indicates that the Palestinians are prepared to violate the terms of agreements they have entered into when such terms become inconvenient or do not lead to the results the Palestinians otherwise desire. Such actions violate fo undational principles of international law, to wit, the principle of ·'good fa ith" 3 4 and the rule of ''pacta sunt servanda" regarding treaties , and cannot be permitted or tolerated. :Consultative Status for the E::ropean Centre for Law and Justice, U.N. DEP'T ECON. & Soc. AFF., http://esango.un.org/civilsociety/consultativeStatusSummary .do?profileCode=30 10 (last visited 2 Nov. 201 2). � Rap�ael Ahren, Full List of Treaties, Conventions Where Abbas Seeks Membership, TIMES OF ISRAEL (2 Ap;-. 20 14, 3:50 PM), http://v.·-.vw.timesofisraei.com/full-1 ist-of-organizations-to-·v.·hich-abbas-appl ied-for membership. 3 Pacta sunt servanda means generally that agreements of the parties to a treaty must be observed. See BLACK'S LAW DICTIONARY 1217 19th ed. 20 11). 4 Yienna Convention on the Law of Treaties, pmbl., 23 May 1969, 1155 U.N.T.S. 331, 332, available at http:;://treaties.un.org/doc/Publicat!on/UNTS!Yolume%20 1155/volume-1155-1- I S232-English.pdf. HECEIVED r (PoL-{ ' .J o; /o o s-i Pol-/ o1/ o 02 This most recent attempt by the Palestinians to circumvent treaties they have entered into fo llows on the heels of their seeking a change in status at the UN in November 2012 in violation of those same treaties. If a true and lasting peace is to be achieved between Israelis and Palestinians, it must be achieved via good fa ith, bilateral negotiations between the parties, not by seeking to circumvent agreements already made. Such circumvention simply demonstrates to the world community at large and to the Israelis in particular that the Palestinians do not keep the solemn agreements they enter into, do not negotiate in good faith, and, therefore, cannot be trusted. No State or organisation should be complicit in the Palestinians' betrayal of agreements they previously entered into. In this letter, we discuss the fo llowing issues: First, the change in status adopted by the UN General Assembly in November 20 12 did not-indeed, could not-change the PA's actual statehood status. Accordingly, the PA remains a non-State entity that cannot accede to international treaties or join UN agencies. Second, by its own actions, the PA appears institutionally incapable of carrying out obligations it agrees to in treaties it fr eely enters into, thereby demonstrating that it is not ready to assume the burdens of responsible statehood. Accordingly, the PA is precluded fr om acceding to international treaties and joining UN agencies. Third, no sovereign Arab Palestinian political entity has ever existed in any territory that comprised the Mandate for Palestine, and no such entity exists today. Once again, the PA's lack of statehood precludes its attempts to accede to international treaties e>r join UN agencies, both of which limit accession to "States" or "Powers". In conclusion, the PA's only legitimate way ahead is to negotiate in good fa ith with Israel to resolve all outstanding issues between them. The process will be difficult and require often painful concessions by both sides, but it is the only route to the two-state solution and peace between Israelis and Palestinians. I. THE UN GENERAL ASSEMBLY'S ADOPTION OF THE PALESTINIAN AUTHORITY'S 29 NOVEMBER 2012 STATUS CHANGE RESOLUTION DID NOT-INDEED, COULD NOT-CREATE A PALESTINIAN STATE. Despite quite understandable Palestinian excitement over the 29 November 2012 General Assembly vote which changed the PA's status at the UN from "Entity" with Observer status to "Non-Member State" with Observer status, no legal change actually occurred with respect to the creation or existence of a Palestinian "State" for the fo llowing reasons: First, under the UN Charter, the General Assembly has no lawful authority whatsoever to create or recognise a "State". The UN does not officially recognise states or declare statehood; such actions are the responsibility of individual governments: The recognition of a new State or Government is an act that only other States and Governments may grant or withhold. It generally implies readiness to assume diplomatic relations. The United Nations is neither a State nor a Government, and therefore does not possess any authority to 5 recognize either a State or a Government . 5 Member States: About UN Membership. U.N., http://www.un.org/l!n/members/about.shtml (last ,·isited 10 · Apr. 2014) (emphasis added). 2 Hence, were the General Assembly to attempt to either create or recognise a "State", its actions would be ultra vires and void ab initio. As a consequence, the recent General Assembly decision to change the PA's status at the UN was, at most, simply an internal, administrative decision whose reach is limited to how the PA will henceforth be dealt with at the UN-and nothing more. As U.S. Representative Susan Rice correctly noted at the time, "[ n ]o resolution can 6 create a state where none exists" . A similar sentiment was expressed by the Representative from Georgia: "The resolution adopted today could be understood as conferring privileges and rights in line with those of Non-Member Observer States; it did 7 not imply an automatic right fo r Palestine to join international organizations as a State" • Similarly, the Finnish Representative noted that "the Assembly's vote did not entail formal recognition of a Palestinian State. Finland's national position on the matter would 8 be considered at a later date" . Moreover, while nothing can make the current Palestinian entity into an actual State, since it lacks all internationally-recognised attributes of statehood (notwithstanding a General Assembly resolution seemingly to the contrary), the various attempts to grant "Palestine" recognition as a State are, in fact, undermining international law. Law has to be applied generally and should never be changed to suit a particular instance of political expediency, which permitting the non-State entity "Palestine" to accede to international treaties and become a member of UN agencies truly is (since accession and membership, respectively, are limited to actual "States"). The trustees of international treaties and the heads of international organisations must be above politics. In reality, the recently adopced resolution merely gives the Palestinians the rights and privileges of a Non-Member Observer State at the UN (like the Holy See) without actually conferring or recognising Palestinian statehood per se. Accordingly, the PA remains a non-State entity. which is incapable of joining UN agencies or acceding to international conventions, since both limit· participation to "States" or ''Powers" (a term understood to mean States). Second, the General Assembly hes no lawful authority to determine the borders, the territorial extent, or the capital city of any state, much less those of an entity whose very existence as a "State" is easily disproven under international law. Despite a clear lack of lawful authority to do so, the. status change resolution adopted by the General Assembly nevertheless explicitly incorporated the PA's view concerning borders, territory, and 9 national capital of a future Palestinian "State" while totally disregarding not only 6 Joe Lauria et al., UN. Gives Palestinians 'State' Status, WALL ST. J. (29 Nov. 2012, 11:13 PM), http://online.wsj.com/news/articles/SB I 0001424 127887323751 104578 1491933072345 14. 7 See Gen. Assembly, Dep't of Pub. Information, General Assembly Votes Overwhelmingly to Accord Palestine 'Non-Member Obse1 ver State' S:atus in United Nations, U.N. (29 Nov. 20 12), http://v1ww. un.org/News/Press/docs/20 12/ga II .1 I 7 .doc.htrn. 8!d. Moreover, the United Kingdom's representative expressed grave concern "about the action the Assembly had taken, saying that 'the window for <: negotiated solution was rapidly closing'. Israel and Palestine must return to credible negotiations to save a two-State solution. The Palestinian leadership should, without precondition, return to the table"'. !d. Germany's representative expressed similar concern by stating that Palestinian statehood could only be achieved through '·direct negotiations". /d. 9 We say "future'" state for a number of reasons: First, because even PA President Mahmoud Abbas described what occurred at the Ger,eral Assembly as being the ''birth certificate" of Palestine, id.; and 3 Israel's well-established counterclaims but also the explicit means-to wit, bilateral negotiations-previously agreed to by both Palestinians and Israelis (under the auspices of the international community) for resolving such disputes as well as explicit language in prior Security Council resolutions.