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The Value of an International Guarantee

Yesterday, I noted that a UN Security Council endorsement of “a two-state solution based on the June 4, 1967 borders,” such as Mahmoud Abbas is seeking, would radically alter the existing international position, prejudice the outcome of negotiations, and probably spark an escalating war of unilateral moves and countermoves. But it would also have another deleterious effect: it would provide further proof that international guarantees to Israel are worthless. And because reliable international guarantees will be a necessary part of any Israeli-Palestinian agreement, this would make a deal significantly less likely.

After all, Resolution 242 was the strongest international guarantee anyone could hope for: a binding Security Council resolution that, as explained yesterday, explicitly assured Israel that it would not have to withdraw to the 1967 lines. And all subsequent Israeli governments relied on this assurance: while Labor and Likud governments disagreed over where Israel’s final border should run, each built settlements in those areas they thought Israel would retain under any peace deal.

Thus if the Security Council were to change its mind now and retroactively invalidate the guarantee it gave Israel in 242, it could clearly change its mind on anything — meaning that Israel could not rely on any international guarantee it might receive as part of a final-status deal.

In truth, the Security Council has already made this pretty clear, via its treatment of Resolution 1310, which certified Israel’s unilateral pullout from Lebanon in 2000 as complete to the last inch. Almost immediately after that resolution passed, Hezbollah began insisting that the pullout was not complete because Israel still occupied the “Lebanese territory” of Shaba Farms. Yet UN experts had previously determined that Shaba was Syrian, not Lebanese, and that determination served as the basis for both Israel’s pullout and the subsequent Security Council endorsement.

But instead of sticking by this endorsement, the international community quickly backtracked: in 2006, the Security Council unanimously passed Resolution 1701, which ordered the UN to delineate “the international borders of Lebanon, especially in those areas where the border is disputed or uncertain, including by dealing with the Shebaa farms area.” The UN subsequently set up a new mapping commission to do so. And while the commission has yet to submit its final conclusions, the Israeli press reported two years ago already that it intends to declare Shaba Lebanese

This sends a pretty clear message: there’s no such thing as a “final” border for Israel; anytime an Arab state demands additional territory, the UN will happily scrap its own previous determination of the “final” border and favorably consider the new Arab request.

Nevertheless, many Israelis still view this as an aberration rather than a precedent. If the Security Council decides to scrap 242 as well, that illusion will be even harder to maintain.

Hence before considering Abbas’s proposal, the council ought to ask itself how many promises to Israel it can violate before even the most optimistic Israelis conclude that no such promise can be trusted — and whether that really serves the cause of peace.



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