Could a U.N. Upgrade Help the Palestinians Prosecute Israeli Officials?
How the fight over Palestine's U.N. membership could generate an international legal crisis.
Would a Palestinian state recognized by the United Nations have the right to bring legal action against Israel and Israeli officials at the International Criminal Court or the U.N.'s own International Court of Justice?
This question, which is far more complicated than it seems, turns out to be at the heart of conflict over Palestinian President Mahmoud Abbas' efforts to secure recognition of a Palestinian state at the United Nations. In a May 16 New York Times op-ed, President Abbas said he was hoping that U.N. membership would "pave the way for us to pursue claims against Israel at the United Nations, human rights treaty bodies and the International Court of Justice." Palestinians clearly hope this would be the case, and it's clear that Israel, the United States, and some European states are worried about that too.
As of this writing, Abbas says he's going to submit an application for full U.N. membership to Secretary-General Ban Ki-Moon after his speech on Friday. But Abbas knows that the required nine-vote Security Council majority is significantly in doubt, and that even if it can be secured the United States is publicly committed to vetoing any such resolution. Therefore, the most Palestinians can accomplish is for the U.N. General Assembly to vote to upgrade Palestine to a nonmember observer state. No plans for a General Assembly resolution have been announced—presumably because the Palestinians are still pushing hard for the more ambitious Security Council victory—but there is little doubt the Palestinians could win a majority for one.
It is this nonmember observer status that could cause a showdown over the Palestinians' right to petition international legal bodies. At the U.N. itself, nonmember status would not do much to change the Palestinians' rights and prerogatives, but it could theoretically provide them access to a number of international law enforcement agencies and mechanisms, most notably the International Criminal Court, which was created by a treaty among many nations.
Ambassador Christian Wenaweser, president of the ICC Assembly of State Parties, told the Wall Street Journal that a Palestinian observer state could join the ICC and try to initiate proceedings against Israel under the Statute of Rome. Because Israel is itself not a party to the ICC, Israeli officials cannot be prosecuted on the basis of their Israeli nationality. And so far the Palestinians have not had success bringing criminal action against Israelis for their acts in the Palestinian territories, because the legal status of East Jerusalem, the West Bank, and the Gaza Strip—is internationally undetermined. The ICC essentially ignored a 2009 effort by the Palestinian Authority to get the ICC to take action against Israel regarding the war in Gaza.
However, if the General Assembly were to recognize an observer Palestinian state in its 1967 borders, not only could Palestine become a party to the ICC, it could claim to be the legal sovereign in the occupied territories and seek charges for Israeli actions in those territories on that basis.
At the ICC, Israel would not only be vulnerable to charges regarding unlawful military actions against persons and property, but also for settlement activity, which the Statute of Rome defines as a war crime. It is also potentially vulnerable to charges under the "crime of apartheid," which is defined as "inhumane acts ... committed in the context of an institutionalized regime of systematic oppression and domination by one racial group over any other racial group or groups and committed with the intention of maintaining that regime." That would certainly seem to apply to the social, legal, and political system enforced by Israel in the occupied territories, although the question of intending maintenance of it might be an out for the Israelis on this issue.
Hussein Ibish writes about Middle East affairs for numerous American and Middle Eastern publications, is a columnist for Now Lebanon, and blogs at www.ibishblog.com.
Photograph of Palestinian President Mahmoud Abbas by Spencer Platt/Getty Images.