Although much remains to be done to
ensure that the August cease-fire between Israelis and Palestinians is
not a mere lull in hostilities, many have already started looking beyond
that basic requirement, arguing that it is time to address the root
causes of the conflict. I agree. But I do not believe this should mean a
rush to hit the reset button on the stalled peace process. That has
repeatedly failed, and it is virtually certain to continue to fail in
the absence of fundamental adjustments to the existing paradigm, the
Oslo framework.
The adjustments I propose fall mainly in two areas. The first relates
to Palestinian representation in the context of both the peace process
and national governance. The second relates to the question of continued
validity of the Oslo framework, especially given that it was designed
on the basis of a timeline that long since expired in 1999.
The question of who exactly has the power or privilege to represent
the Palestinian people has been a prominent feature of Palestinian and
Arab political discourse since the early days of the contemporary
Palestinian revolution. Beginning in the mid-1970s, however, the drive
to vest that power solely in the Palestine Liberation Organization (PLO)
gained momentum, and it ultimately culminated in Israel’s recognition
in 1993 of the PLO as “the representative of the Palestinian people” in
the context of the highly asymmetrical formulation of recognition in the
Letters of Mutual Recognition. Conspicuously, but not coincidentally,
missing from that formulation was the characterization of the
“representative” as the “sole legitimate” representative.
But that is not why the agreement should be regarded as highly
asymmetrical. The more relevant fact is that the PLO received only a
qualified recognition from Israel, in the sense of it being conditioned
on the PLO’s recognition of “the right of the state of Israel to exist
in peace and security” and with the PLO settling for much less than a
reciprocal recognition of the right of Palestinians to a state of their
own. This in essence signaled acceptance of the Israeli historical
narrative at the expense of the Palestinian narrative. In addition, the
recognition was formulated in such a way that it arguably gave Israel a
veto power over the possible emergence of a Palestinian state if it
could represent that Palestinian statehood in any way undermined its own
security. Nevertheless, notwithstanding the asymmetry of it, the mutual
recognition of 1993 paved the way for the PLO to become universally
accepted as the representative of the Palestinian people.
A downside to this success, however, was that, as of the signing of
the Oslo Accords, the PLO was judged no longer on the basis of its past
glory but entirely by the success of the Oslo framework in delivering a
fully sovereign Palestinian state on the territory Israel occupied in
1967. Unfortunately, when judged by this criterion, the PLO’s record
must be considered a dismal failure. Oslo has obviously failed to
deliver Palestinian statehood by the end of the “interim period.”
Moreover, the prospects of that happening anytime soon are decidedly
dimmer today than they were then. This has contributed to a
progressively receding sense of possibility about Palestinian statehood,
with the ensuing sense of gloom undoubtedly reinforced by a completely
unbearable state of the human condition in the occupied Palestinian
territory, both in Gaza — where, in addition to the tragedy associated
with periodic military escalation, people had to always contend with
severe water and power shortages, inadequate public services, and a
virtually complete ban on travel — and in the West Bank, where
Palestinians’ right to live with dignity on their land has been
constantly and severely undermined by a highly capricious and oppressive
military occupation, as well as settler extremism and acts of outright
terrorism.
These factors, combined with the fact that the Palestinian Authority
did not always govern well, did a lot of damage to the PLO. However,
probably more than anything else, the PLO’s standing was ultimately
compromised by the defeat of its platform of nonviolence. Over time, the
view that “violence pays off” started to gain favor with the public at
large, leading non-PLO resistance factions to become more popular.
An adjustment to Palestinian representation is therefore necessary.
But such an adjustment could also facilitate dealing with the
fundamental problem of the Oslo framework — namely, it having
transformed from an interim arrangement to a de facto open-ended
arrangement. Failing to address this problem would perpetuate an absurd
situation whereby Palestinians would continue to have to choose either
to accept what Israel was prepared to offer in negotiations or to live
under its oppressive occupation.
In essence, the adjustments I propose aim at redressing the
fundamental asymmetry in the balance of power between the occupying
power and the occupied. They consist of the following key elements.
First, 21 years after Palestinians granted it recognition of its right
to exist in peace and security, Israel should reciprocate symmetrically
by recognizing the Palestinians’ right to a sovereign state on the
territory it occupied in 1967 in its entirety. Second, Israel should be
prepared to accept an internationally mandated date for ending its
occupation and a mutually agreed path for getting there. Third, in the
interim, Palestinians should not continue to be hamstrung in their
effort to achieve national unity by an insistence, on the part of the
international community, on a rigid application of “the Quartet
principles.” As
they require any Palestinian government to fully accept the Letters of
Mutual Recognition, those conditions obviously derive their validity
from a framework whose premises no longer are valid. Fourth,
Palestinians need to see a cessation of all practices that undermine
their right to live with dignity on their land, as they proceed to
attain full national unity and persevere in their effort to build their
state and prepare for statehood.
The key to quickly working toward securing these adjustments lies in a
fully determined Palestinian effort aimed at achieving unity through a
more inclusive representation framework. Toward that end, consideration
should be given to the following elements.
Until such time as it becomes possible to expand the membership of
the PLO, whether through elections or some other objective mechanism
that may be agreed upon, I would propose that the PLO, together with its
platform, be left alone, while permitting it to retain the title of
“sole legitimate representative of the Palestinian people.” The Unified
Leadership Framework (ULF), which includes all PLO factions and those
not affiliated with it, should be tasked with collectively informing the
decisions of the executive committee of the PLO on matters of high
national interest. Membership in the ULF by non-PLO factions does not
require acceptance on their part of the PLO’s platform. Consideration
could, however, be given to having the ULF adopt a time-bound commitment
by all factions to nonviolence, keeping in mind that it would make
sense to have the term of the commitment to nonviolence correspond to
the time judged to be needed to enable the government to unify the state
institutions and laws after more than seven years of separation.
It would also be important to ensure that the government is
representative of the full political spectrum and empowered to the
fullest extent afforded by the Basic Law. The government should commit
to holding fair, free, and inclusive elections no later than six months
before the end of the period during which the commitment to nonviolence,
building, and reunification is to stand. In the meantime, Palestine’s
current legislature should be reconvened and the political system should
be opened up to a broader base of participation.
What is critically needed at this stage is a national consensus on
these, and possibly other, issues. But this national consensus,
especially the timeline embodied in it, can be used as a basis for
approaching Israel and the international community with the chief aim of
setting a date certain for ending the Israeli occupation and moving to
resolve all outstanding issues.
However, beyond trying to forge a Palestinian national consensus on
issues of the kind outlined above, it would be important for that
consensus to reflect an adequate appreciation of two other elements.
First, good governance is always and everywhere important. In the
Palestinian context, it is also hugely important as an enabler in the
quest for greater legitimacy and international attention and support.
Second, against the backdrop of a region tragically caught up in
unprecedented extremism and violence, the foundational principles on
which the Palestinian state should stand acquire added importance. Thus,
it is incumbent on Palestinians, and as a matter of conscious
decision-making, to build a state that is founded on the basis of the
universally shared progressive values of equality, tolerance,
nondiscrimination, openness, and full sensitivity to the unabridged
rights and privileges of citizenship. In any event, that, to me, is the
only kind of state that would be worthy of the aspirations and great
many sacrifices of the Palestinian people.
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