Those rights
were first enshrined in the most famous and important U.N. resolution in the
peace process,
U.N. Security Council Resolution 242. This month marks the
anniversary of the resolution. The first draft was proposed on November 7, 1967,
while the final draft was adopted unanimously by all 15 Security Council members
on Nov.ember 22 that year. Nearly fifty years have passed since that time.
Nonetheless, it remains as relevant for peacemaking as ever.
Understanding the significance of Resolution 242 is not an exercise in
the study of some obscure aspect of decades old diplomatic history. Over the
years the resolution evolved into the basis of the entire peace process,
including the 1979 Egyptian-Israeli peace treaty, the 1991 Madrid peace
conference, the 1993 Oslo Accords, the 1994 Jordanian-Israeli peace treaty, and
draft agreements with Syria. Back in 1973, on the eve of the Geneva Peace
Conference, the U.S. even provided a letter of assurance to Israel that it would
prevent any party from tampering with Resolution 242. Israeli diplomacy sought
to protect Resolution 242 as though it was a crown jewel of the Jewish
state.
Resolution 242 is best known for its famous withdrawal clause,
which did not call on Israel to pull back to the pre-war 1967 lines. While the
Soviet Union insisted that the resolution specifically call for "a withdrawal
from all the territories occupied" by Israel in the Six-Day War, the U.S. and
Britain countered with very different phraseology that was reflected in the
final draft, eventually adopted by all 15 members of the Security Council. It
would only state that there had to be a withdrawal "from territories."
The U.S. and Britain recognized that the pre-1967 line had only been an
armistice line from 1949 and was not a final international border. Indeed,
Article 2 of the original 1949 Armistice Agreement between Israel and Jordan
clearly stipulated that it did not prejudice the territorial "claims and
positions" of the parties since its provisions were "dictated exclusively by
military considerations."
The battle over the language of the withdrawal
clause was not just conducted by overly legalistic advisers to the British and
American missions to the U.N.; everyone understood that these distinctions had
enormous significance, for they went all the way to the apex of power in both
Washington and Moscow and were settled in direct communications between
President Lyndon Johnson and Prime Minister Alexei Kosygin.
The British,
under Prime Minister Harold Wilson, were the main drafters of Resolution 242.
Their Ambassador to the U.N. in 1967, Lord Caradon, clarified what the language
of the withdrawal clause meant in an interview published in 1976 in the Journal
of Palestine Studies: "We could have said, 'Well, you go back to the 1967 line.'
But I know the 1967 line, and it's a rotten line. You couldn’t have a worse line
for a permanent international boundary. It’s where the troops happened to be on
a certain night in 1948. It’s got no relation to the needs of the situation. Had
we said that you must go back to the 1967 line, which would have resulted if we
had specified a retreat from all the occupied territories, we would have been
wrong."
Any Israeli withdrawal had to be to "secure and recognized
borders," as the resolution stated. Lord Caradon's American counterpart, Arthur
Goldberg, fully supported this interpretation repeatedly over the years, such as
in his 1988 statement: "The resolution stipulates withdrawal from occupied
territories without defining the extent of withdrawal." Goldberg was a legal
scholar who served previously on the U.S. Supreme Court, before coming to the
U.N.
Others backed his interpretation as well. The senior U.S. figure in
the State Department with responsibility for the Middle East, Joseph Sisco, went
on NBC's Meet the Press on July 12, 1970, and also said: "That resolution [242]
did not say 'withdrawal to the pre-June 5 lines'.'' In short, there was no
argument about how Resolution 242 should be interpreted. Israel had rights to
retain some West Bank territory, so that at the end of the day it could obtain
defensible borders in any future political settlement.
By the way, it is
notable that according to Resolution 242, Israel was entitled to this territory
without having to pay for it with its own pre-1967 territory. There were no land
swaps in Resolution 242. Nor was there any corridor crossing Israeli sovereign
territory so that the West Bank could be connected to the Gaza Strip (just as
there is no land corridor across Canada connecting Alaska to the rest of the
U.S.). These diplomatic innovations were thought of by negotiators in the 1990s,
but Israel in no way is required to agree to them, according to Resolution 242.
In his memoirs, Abba Eban, then Israel's foreign minister, described the
readiness of the U.S. and Britain, in particular, to agree to a revision of the
pre-war boundaries as a "major breakthrough" for Israeli diplomacy.
Yet
there were also efforts underway over the years to erode this Israeli
achievement. Some diplomats argued that the French version of the resolution
said "from the territories," rather than "from territories." Anglo-American
diplomacy had carefully avoided the definite article in the English version.
Whether the French version was a translation mistake or a consequence of how
French grammar deals with abstract nouns didn't matter. Resolution 242 was
negotiated in English, and 10 out of 15 members of the U.N. Security Council
were English-speaking countries. Thus the English version of Resolution 242 was
the decisive version to work with.
In 1970, British Prime Minister
Wilson had been replaced by Edward Heath. In January 1973, Britain joined the
European Economic Community, leading to a major erosion of its position on
Resolution 242. On Nov. 6, 1973, in the aftermath of the 1973 Yom Kippur War,
the EEC issued a joint declaration which reflected its own growing sense of
vulnerability to threats of an Arab oil embargo. It was a time when no European
state would even allow U.S. cargo aircraft with badly needed spare parts for the
IDF to refuel on their way to Israel - only Portugal agreed, but insisted on the
U.S. using its airfield in the Azores. Europe as a collective felt it needed to
appease the Arab oil-producers. As a result, the EEC declaration, which now
included Britain, explicitly stated that Israel had to withdraw to the armistice
lines of 1949. Under pressure, the British abandoned the essence of a resolution
that they themselves had drafted six years earlier.
One of the intriguing
aspects of Resolution 242 was that it said nothing about Jerusalem. In a letter
to The New York Times on March 6, 1980, Arthur Goldberg wrote: "Resolution 242
in no way refers to Jerusalem, and this omission was deliberate." He explained
that he never described Jerusalem as "occupied territory." Goldberg was reacting
to the policy of the Carter administration, which was criticizing Israeli
construction practices in east Jerusalem and misrepresenting Israel's legal
rights. Goldberg believed that the status of Jerusalem had to be negotiated, but
he insisted that "Jerusalem was not to be divided again."
Israel itself
may have contributed to confusion about its rights in Jerusalem. The 1993 Oslo
Accords formally recognized Jerusalem as a subject for future final status
negotiations. Yet that did not mean that Prime Minister Yitzhak Rabin was
prepared to re-divide Jerusalem. Negotiability was one thing; withdrawal was
something else. In his final Knesset address, on Oct. 5, 1995, one month before
he was assassinated, Rabin declared: "The borders of the State of Israel, during
the permanent solution, will be beyond the lines which existed before the
Six-Day War. We will not return to the June 4, 1967 lines." Rabin spoke the
language of Resolution 242. He added that Israel would retain "a united
Jerusalem."
The effort to erode Israel's rights recognized in Resolution
242 has continued. Over the past few years, the Middle East Quartet suggested to
Israel that if it would say that the basis of the negotiations would be the 1967
lines, then Mahmoud Abbas would come back to the negotiations. This strategy
didn't work back then and contradicted Resolution 242.
Ultimately, U.S.
Secretary of State John Kerry succeeded in restarting negotiations without
making the 1967 lines the basis of a final settlement. As Israel engages in the
current sensitive talks with the Palestinians, it is imperative that it recall
its legal rights, especially to those states who voted for Resolution 242 but
now demand that Israel withdraw to the 1967 lines, contrary to what the U.N.
originally established.