Robust resurrection of the peace process
The recognition of a Palestinian state by Norway, Ireland and Spain marks a significant diplomatic shift in Europe’s approach to the Israeli-Palestinian conflict. This move compels the European Union (EU) to navigate the complex terrain of national positions while striving to formulate a coherent foreign policy that supports peace and stability in the Middle East and North Africa region. One challenge lies in reconciling differing national stances within the EU and leveraging this collective recognition to foster a sustainable post-war order once the devastating war sparked by Hamas’s October 7, 2023 attack on Israel is resolved.
But there cannot be a meaningful post-war order unless the Israel-Palestine peace process is resurrected robustly. The EU needs to develop a common strategy to address this bigger picture, which includes optimizing cooperation with Arab countries and implementing effective dialogue formats alongside foreign cultural and economic policies. The EU can pursue these goals without necessarily placing reaching an agreement on immediate recognition of a Palestinian state as a prerequisite goal.
Of course the EU should not abandon efforts to transform such recognition into a swift EU-wide reality; ultimately, the existence of a sovereign Palestinian state is what the EU-backed two-state solution means in practice. The EU must pursue all goals simultaneously.
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Sympathy towards Palestinian self-determination
The recognition of Palestine by individual European countries reflects a diverse range of national interests, historical relationships, and domestic political considerations. For instance, Ireland’s long-standing sympathy towards Palestinian self-determination and Spain’s historical ties to the Arab world play significant roles in their decisions. The EU must first acknowledge these diverse motivations and try to find common ground to build a unified stance.
The EU must emphasize the collective benefits of a unified stance, including enhanced geopolitical influence and the potential for more effective mediation in the conflict. Achieving consensus within the EU requires diplomatic finesse and inclusive dialogue. The EU’s High Representative for Foreign Affairs and Security Policy Josep Borrell can spearhead efforts to convene member states, facilitating discussions that address both the strategic and moral imperatives of recognizing a Palestinian state.
EU institutions such as the European External Action Service (EEAS) and the European Parliament can play pivotal roles in formulating and promoting a common policy. These bodies can provide platforms for member states to articulate their positions, debate policy proposals, and ultimately converge on a unified strategy. A resolution by the European Parliament endorsing a common approach can lend significant political weight to the EU’s stance.
“A resolution by the European Parliament endorsing a common approach can lend significant political weight to the EU’s stance.”
The main challenge for the EU in this regard is not the existence of EU institutions and mechanisms to facilitate achieving a coherent policy but political will among member states regarding formulating and adopting policy details. In November 2023, Borrell announced topline principles for the EU on the Israel-Palestine issue including helping build a sovereign Palestinian state and supporting humanitarian aid to Palestinian territories. It is safe to say that all member states agree on those broad principles. But formulating a common strategy for peace and stability requires a deeper delve which remains absent.
The EU must continue to leverage its diplomatic channels to support the recognition of a Palestinian state within a framework that promotes peace and stability. This involves reaffirming commitment to a two-state solution based on the 1967 borders, with Jerusalem as a shared capital, and engaging in efforts to bring all EU member states on board to discuss how the EU can best support transforming the commitment into a reality. The EU has expressed the will to work with international partners, including the United Nations and the United States, to ensure that ultimate recognition of a Palestinian state translates into constructive diplomatic engagement rather than exacerbating tensions. But this remains hindered by both European and international hurdles: There is still no internal agreement on when recognition of a Palestinian state can happen, while the US remains opposed to granting such recognition in the short term, thereby limiting the possibility for EU-US alignment. Despite these hurdles, there remain multiple avenues for the EU to be an effective actor in the context of the Israel-Palestine conflict.
Optimizing cooperation with Arab countries
The EU must optimize cooperation with Arab countries in a multifaceted way. As ensuring security for both Israelis and Palestinians is crucial, the EU can propose and support initiatives aimed at building mutual trust and reducing violence which include Arab countries as partners. This might take the form of training programs for Palestinian security forces and joint Israeli-Palestinian security initiatives (even though such attempts have already been made in the past). In 2022, the EU announced a strategic partnership with Gulf countries. Such a partnership can provide a starting point for widening discussions on security and stability in the Middle East and North Africa region as a whole, including Israel and Palestine.
“The EU can propose and support initiatives aimed at building mutual trust and reducing violence which include Arab countries as partners. This might take the form of training programs for Palestinian security forces and joint Israeli-Palestinian security initiatives.”
Creating regional cooperation frameworks can facilitate dialogue and cooperation. The EU can work with the Arab League and the Gulf Cooperation Council to establish forums where regional actors can discuss and coordinate their efforts towards supporting a Palestinian state and ensuring regional stability. These forums can also address broader regional issues, such as economic development, security cooperation, and counter-terrorism.
The EU should also enhance its bilateral relations with Arab countries that play key roles in the Israeli-Palestinian conflict, such as Egypt, Jordan, and Saudi Arabia. These countries have significant influence over Palestinian politics and can be vital partners in peace efforts. Arab countries like Saudi Arabia and Qatar have already expressed their commitment to be active participants in peacebuilding initiatives; in return, the EU can offer them economic incentives, trade agreements, and political support to strengthen its bilateral partnerships with them.
Economic and humanitarian aid can be instrumental in stabilizing the region and fostering goodwill. With the cultural and educational sectors in Gaza having been devastated as a result of the October 7 war, there is an immense space for the EU to play a constructive role in rebuilding these sectors, which would also help bolster the EU’s standing in the Middle East and North Africa. The EU should increase its support for Palestinian infrastructure, education, healthcare projects, as well as economic recovery. By improving living conditions and economic opportunities in Palestinian territories, the EU can help mitigate the factors that fuel conflict and support the development of a viable Palestinian state.
For example, the EU should expand its cultural and educational initiatives to include more opportunities for students, academics, and professionals from the EU and Arab countries to engage in exchanges to build networks of cooperation and trust. Partnering with UNESCO and European educational organizations can enhance the reach and impact of these initiatives.
“The EU should expand its cultural and educational initiatives to include more opportunities for students, academics, and professionals from the EU and Arab countries to engage in exchanges to build networks of cooperation and trust.”
EU engagement on Israel and Palestine must involve diverse actors. The EU can organize multilateral conferences that include representatives from Israel, Palestine, Arab countries, and other international stake holders. These conferences should be designed to encourage open dialogue, address grievances, and explore solutions including regarding support for civil society. Track II diplomacy, involving non-governmental actors, academics, and civil society leaders, can complement official negotiations and generate innovative ideas. The EU should particularly increase its support for civil society organizations that work on reconciliation, human rights, and development in the Palestinian territories and Israel. Funding, capacity-building programs, and platforms for dialogue can empower these organizations to play more significant roles in the peace process so that the peace agenda is not limited to being set from the top down.
In pursuing this, the EU must learn from its ongoing similar efforts regarding the Syrian conflict. One of the challenges of the Israel-Palestine conflict is that it was put on the backburner for years by EU policymakers. This relative inattention has played a role in the complicated reality faced today. The Syrian conflict has now slipped into a similar situation, with countless aid conferences and Track II initiatives taking place yet without a political resolution to the conflict. The EU must not fall into the trap of placing multilateral conferences and Track II diplomacy initiatives as a replacement for political action.
Realizing positive impetus for a post-war order
Achieving a post-war order that supports peace and stability requires a long-term commitment from the EU. While immediate recognition of a Palestinian state would be a significant step in building trust between the EU and the Arab world, the EU must not let lack of consensus on the matter among member states become an excuse for EU passivity towards the Israel-Palestine conflict. The EU’s commitment to being an active actor for peace should be reflected in sustained diplomatic efforts, continuous economic and humanitarian support, and ongoing engagement with regional and international partners. The EU must be prepared to adapt its strategies as the situation evolves, maintaining a flexible yet resolute approach. The EU itself may not be able to spur the Israel-Palestine conflict towards a resolution but it can play an important supportive role in peacebuilding.
The EU’s strategy must address the root causes of the Israeli-Palestinian conflict, including issues of sovereignty, security, economic disparity, and human rights. This involves not only mediating between conflicting parties but also supporting systemic changes that promote justice and equity. Land disputes, access to resources, and the right of return for refugees are among the critical issues that need comprehensive solutions.
Empowering local communities and institutions is crucial for sustainable peace. The EU should focus on building the capacities of Palestinian institutions to act effectively, deliver public services, and uphold the rule of law. Training programs, technical assistance, and financial support can help develop robust institutions that are essential for a functioning state.
Economic integration can foster interdependence and reduce the incentives for conflict. The EU can support initiatives that promote trade and investment between Israel and Palestine, as well as with neighbouring Arab countries and with Europe. Special economic zones, joint ventures, and infrastructure projects can create economic opportunities and build a foundation for peaceful coexistence.
“Special economic zones, joint ventures, and infrastructure projects can create economic opportunities and build a foundation for peaceful coexistence.”
Even if the EU is unable to reconcile diverse national positions on recognizing a Palestinian state in the immediate term, the EU can still make a important contribution while working towards this reconciliation. This includes formulating a common strategy for peace and stability, optimizing cooperation with Arab countries, and implementing effective dialogue formats and cultural and economic policies. The EU can provide constructive impetus for a post-war order. This approach requires addressing conflict root causes, building local capacities, and promoting economic integration. Through these efforts, the EU can play a pivotal role in fostering peace and stability in the Middle East and North Africa region, demonstrating its ability to act as an influential global actor.
© Qantara.de 2024
Lina Khatib is director of the SOAS (School of Oriental and African Studies) Middle East Institute and MBI Al Jaber Chair in Middle East Studies as well as Professor of Practice at the Department of Politics and International Studies at SOAS University of London.