The
foreign relations of the State of Palestine
have been conducted since the establishment of the
Palestine Liberation Organization
(PLO) in 1964.
[1]
Since the
Oslo Accords
, it seeks to obtain universal recognition for the
State of Palestine
on the
1967 borders
, with
East Jerusalem
as its capital. As of 4 June 2024, 144 of the 193
United Nations
(UN)
member states
officially recognize the State of Palestine (
Israel is recognized by 164
excluding Israel itself).
In November 1988, the
Palestinian National Council
declared the independence of the
State of Palestine
, and in 1994, the
Palestinian National Authority
(PNA) was established following the
Oslo Accords
. The
PLO Executive Committee
performs the functions of the government of the State of Palestine.
After 2011, the PLO's diplomatic effort focused on the
Palestine 194
campaign, which aims to gain membership for the State of Palestine in the
United Nations
. In November 2012, the State of Palestine was accepted as a
non-member observer state
of the
UN General Assembly
with the passing of
United Nations General Assembly resolution 67/19
.
[2]
[3]
Background
The Palestine Liberation Organization was created in 1964 as a paramilitary organization and has sought to conduct foreign relations with states and international organisations since that time.
[1]
Initially, the PLO established relations with Arab and communist countries. In 1969 the PLO became a member of the
Organisation of Islamic Cooperation
.
[4]
[5]
In October 1974, the
Arab League
designated the PLO as the "sole legitimate representative of the Palestinian people".
[6]
The new status of the PLO was recognised by all Arab League states except Jordan (Jordan recognised that status of the PLO at a later stage). On 22 November 1974,
United Nations General Assembly Resolution 3236
recognised the right of the
Palestinian people
to
self-determination
, national independence, and
sovereignty
in
Palestine
. It also recognised the PLO as the representative of the Palestinian people to the United Nations. By Resolution 3237 on the same date, the PLO was granted
non-State observer status at the United Nations
.
[7]
[8]
In September 1976, the PLO became a non-state member of the Arab League, and in the same year became a member of the
Non-Aligned Movement
.
On 15 November 1988, in support of the
First Intifada
, the PLO
declared the establishment
of the
State of Palestine
, which was widely recognised by many foreign governments,
[9]
although often statements made were of an equivocal nature
[10]
? at times referring to the PLO or the State of Palestine or one acting on behalf of the other, or by the generic "Palestine". Many countries and organisations "upgraded" representation from the PLO to the new State, though in practice the same PLO offices, personnel and contacts continued to be used. In February 1989 at the United Nations Security Council, the PLO representative claimed recognition from 94 states.
[11]
[12]
Since then,
additional states
have publicly extended recognition.
The PNA was established by the PLO in 1994 following the
Oslo Accords
and the
Israeli-Palestinian Interim Agreement
. The
Israeli
government transferred certain powers and responsibilities of self-government to the PNA, which are
in effect in parts
of the
West Bank
, and used to be effective in the
Gaza Strip
before
its takeover
by
Hamas
. The
Foreign Affairs Minister of the Palestinian National Authority
, who since July 2007 has been
Riyad Al-Maliki
, is responsible for the foreign relations of the PNA. States maintain official relations with the PNA through offices in the
Palestinian territories
, and the representation of the PNA abroad is accomplished by the missions of the PLO, who represents it there.
Both the PLO (representing itself, the State of Palestine, or the PNA) and the PNA now maintain an extensive network of diplomatic relations,
[13]
and participate in multiple
international organisations
with status of member state, observer, associate, or affiliate. The designation "
Palestine
", adopted in 1988 by the UN for the PLO,
[14]
is currently also used as reference to the PNA and the State of Palestine by states and international organisations, in many cases regardless of the level of recognition and relations they have with any of these entities.
Diplomatic relations
List of countries which maintain diplomatic relations with the State of Palestine by date:
Bilateral relations
The
Palestine Liberation Organization
maintains a network of missions and embassies,
[107]
and represents the
Palestinian National Authority
abroad.
[107]
[108]
Most of the
144 states that have recognised the State of Palestine
have elevated the Palestinian representation in their country to the status of embassy.
[109]
A number of other states have granted some form of diplomatic status to a PLO delegation, falling short of full diplomatic recognition. In some cases, as a matter of courtesy, these delegations and missions have been granted diplomatic privileges,
[109]
and are often referred to as "embassies" with their heads as "ambassadors".
[110]
In the United States, an unofficial PLO information office was established in New York in 1964 and run by Sadat Hassan, who served as Permanent Representative of Yemen to the United Nations.
[111]
The Palestine Information Office was then registered with the Justice Department as a foreign agent and operated until 1968, when it was closed. The PLO was designated a
terrorist organization
by the United States in 1987,
[112]
[113]
but in 1988 a presidential waiver was issued which permitted contact with the organization.
[114]
A PLO office was reopened in 1989 as the Palestine Affairs Center.
[115]
The PLO Mission office, in Washington D.C., was opened in 1994, and represented the PLO in the United States. On 20 July 2010, the United States Department of State agreed to upgrade the status of the PLO Mission in the United States to "General Delegation of the PLO".
[116]
Participation in international organisations
The
State of Palestine
is represented in various international organizations as member, associate or observer.
Arab League
In 1964, the
first summit
of the
League of Arab States
, held in Cairo in January, resulted in a mandate for the creation of a Palestinian entity.
[167]
[168]
Subsequently, in May, the Palestine Liberation Organization was established during a meeting of the Palestinian National Congress in Arab-controlled Jerusalem.
[169]
The organisation's establishment was formally approved at the Arab League's
second summit
, held in Alexandria in October.
[170]
The PLO was granted full membership in 1976.
[171]
Its seat was assumed by the State of Palestine following the declaration of independence in 1988.
[171]
[
specify
]
Organisation of Islamic Cooperation
The PLO was accorded full
membership
in the Organisation of the Islamic Conference (OIC; now named
Organisation of Islamic Cooperation
) in 1969;
[5]
it attended the founding conference, held in
Rabat
in September 1969, as an observer.
[172]
Its seat was assumed by the State of Palestine following the declaration of independence in 1988.
[
specify
]
It is also a member of the
Islamic Development Bank
, an international financial institution for member states of the OIC.
[173]
[174]
Status at the United Nations
The
Palestine National Council
(PNC) sent formal notification to the
U.N. Secretary-General
regarding the establishment of the
Palestine Liberation Organization
(PLO) in May 1964. The following year in October, some Arab states requested that a PLO delegation be allowed to attend meetings of the Special Political Committee, and it was decided that they could present a statement, without implying recognition. PLO participation in the discussions of the Committee took place under the agenda item of the
United Nations Relief and Works Agency for Palestine Refugees in the Near East
(UNRWA) from 1963 to 1973.
[175]
The Palestine Liberation Organization was granted observer status at the
United Nations General Assembly
in 1974 through General Assembly Resolution 3237. In the UNGA's
regional groupings
, the PLO gained full membership in the Group of Asian states on 2 April 1986.
[note 8]
Acknowledging the proclamation of the State of Palestine,
[176]
the UN re-designated this observer to be referred to as "Palestine" in 1988 (General Assembly Resolution 43/177) and affirmed "the need to enable the Palestinian people to exercise their sovereignty over their
territory occupied since 1967
".
[176]
[177]
In July 1998, the General Assembly adopted a new Resolution (52/250) conferring upon Palestine additional rights and privileges, including the right to participate in the general debate held at the start of each session of the General Assembly, the right of reply, the right to co-sponsor resolutions and the right to raise points of order on Palestinian and
Middle East
issues.
[178]
By this resolution, "seating for Palestine shall be arranged immediately after non-member States and before the other observers."
[178]
This Resolution was adopted by a vote of 124 in favour, 4 against (Israel, Marshall Islands, Federated States of Micronesia, United States) and 10 abstentions.
[179]
[180]
Since 2011, Palestinian diplomacy has been centred around the
Palestine 194
campaign, which aims to gain membership for the State of Palestine in the United Nations at its 66th Session in September 2011. It seeks to effectively gain collective recognition for a Palestinian state based on the borders prior to the
Six-Day War
, with
East Jerusalem
as its capital. In September 2012, the Palestine Liberation Organization submitted a
draft resolution
according
non-member observer state
status to Palestine,
[181]
[182]
which the General Assembly approved on 29 November 2012.
[151]
The change in status was described by
The Independent
as "
de facto
recognition
of the sovereign
State of Palestine
".
[183]
The vote was a historic benchmark for the
sovereign
State of Palestine
and its citizens, whilst it was a diplomatic setback for Israel and the United States. Status as an observer state in the UN will allow the State of Palestine to join treaties and
specialised UN agencies
, such as the International Civil Aviation Organisation,
[184]
the Law of the Seas Treaty and the International Criminal Court. It shall permit Palestine to claim legal rights over its territorial waters and air space as a sovereign state recognised by the UN. It shall also provide the citizens of
Palestine
with the right to sue for control of their territory in the
International Court of Justice
and with the legal right to bring war-crimes charges, mainly those relating to the unlawful Israeli occupation of
the State of Palestine
, against Israel in the
International Criminal Court
.
[185]
After Palestine was granted UN observer status, the UN authorised the PLO to title its representative office to the UN as 'The Permanent Observer Mission of the
State of
Palestine to the United Nations',
[186]
and Palestine re-titled its name accordingly on postal stamps, official documents and passports,
[187]
[188]
whilst it has instructed its diplomats to officially represent '
The State of Palestine
', as opposed to the '
Palestine National Authority
'.
[187]
Additionally, on 17 December 2012, UN Chief of Protocol Yeocheol Yoon decided that "the designation of 'State of Palestine' shall be used by the Secretariat in all official United Nations documents",
[189]
thus recognising the PLO-proclaimed
State of Palestine
as being sovereign over the territories of Palestine and its citizens under international law.
International Criminal Court
On 13 June 2014, the State of Palestine became a party to the
International Criminal Court
, based in
The Hague
; the State of Palestine acceded to the
Rome Statute
on 2 January 2015.
[190]
Before the United Nations General Assembly voting in September 2012, the
Palestinian Authority
had tried to become a party to the
Rome Statute
and therefore
recognize the jurisdiction
of the
International Criminal Court
(ICC) in 2009 and again in April 2012.
[191]
[192]
According to
The Jerusalem Post
, "had the ICC accepted the PA's recognition of its jurisdiction, it would have also tacitly accepted its statehood."
[193]
International Committee of the Red Cross and the Red Crescent (ICRC)
In June 2006, a decision by the 29th
International Conference of the Red Cross and the Red Crescent
admitted the
Palestine Red Crescent Society
as a full member of the
International Federation of Red Cross and Red Crescent Societies
.
Geneva Conventions
The State of Palestine has been a full member of the
Geneva Conventions
since 2 April 2014.
In 1989, just one year after the proclamation of the State of Palestine, the Palestine Liberation Organization had tried to accede to the
Geneva Conventions
back in 1989, but
Switzerland
, as the depositary state, had stated that because the question of Palestinian statehood had not been settled within the international community, it was incapable of recognising Palestine as a "
power
" that could accede to the Conventions.
[194]
FIFA, IOC (International Olympic Committee) and IPC (International Paralympic Committee)
The State of Palestine is a full member of the
International Olympic Committee
,
[195]
of the
International Paralympic Committee
,
[196]
and of
FIFA
.
[197]
International Agency for Atomic Energy (IAEA)
On 28 September 2023, a majority of the members of the
International Atomic Energy Agency (IAEA)
approved a proposal for the
State of Palestine
to be recognized, with that name, as an observer state to the Agency.
[Note 1]
World Health Organization (WHO)
The PLO currently holds observer status at the
World Health Organization
(WHO). It had applied for full membership status as far back as 1989, when the
United States
, which provided one-quarter of the WHO's funding at the time, informed the WHO that its funding would be withheld if Palestine was admitted as a member state. Yasser Arafat described the U.S. statement as "blackmail". The PLO was asked to withdraw its application by the WHO director general. The WHO subsequently voted to postpone consideration of the application and no decision on the application has been made yet.
[194]
John Quigley writes that Palestine's efforts to gain membership in several international organisations connected to the United Nations was frustrated by U.S. threats to withhold funding from any organisation that admitted Palestine.
[201]
On 31 October 2011, following the admission of Palestine to UNESCO, the Minister of Health Fathi Abu Moghli announced that the PNA would then seek membership at the WHO;
[202]
however, following reports that that would lead to the defunding of the entire organization by the United States ? as the US had done to
UNESCO
after it admitted Palestine ?, the Palestinian government announced that they would not be seeking membership at WHO at the time.
[203]
As of 2023, the WHO still refers to the territories claimed by the State of Palestine ? the West Bank and Gaza ? as "the
Occupied Palestinian Territory
".
World Trade Organization (WTO)
In 2022, the State of Palestine was allowed to participate, as an
observer state
and under the name "Palestine", of the World Trade Organization's twelfth Ministerial Conference, held in
Geneva
,
Switzerland
.
[204]
International treaties and conventions
The Palestine Liberation Organization, representing the Palestinian National Authority, participates in
trade liberalisation
:
The Palestine Liberation Organization and the Palestinian National Authority are jointly
[note 13]
accepted as party to the international agreements in the
Arab Mashreq
:
Notes
- ^
Including its subordinated organizations of
Islamic Development Bank
(joined in 1977, three years after its establishment in 1974) and
Islamic Educational Scientific and Cultural Organization
(one of the founders in 1982).
[117]
- ^
a
b
The State of Palestine succeeded the seat of the Palestine Liberation Organization following the 1988 Palestinian Declaration of Independence.
- ^
Including its subordinated organizations of
Arab Fund for Economic and Social Development
,
Arab Monetary Fund
and
Arab Satellite Communications Organization
. The PLO's
Palestinian National Council
is one of the founders of the
Arab Inter-parliamentary Union
in 1974.
[120]
- ^
Including its regional subgroup
Asia Pacific Forum
of National Human Rights Institutions (APF).
- ^
Established by 1993 decree of the
President of the State of Palestine
and the
Chairman of the Palestine Liberation Organization
and organized according to 1997 PNA's
Palestinian Legislative Council
law stipulating that "The Commission shall submit its reports to the
President of the National Authority
, and to the Palestinian Legislative Council."
[125]
- ^
a
b
Palestine Liberation Organization delegation has been IPU observer since the 117th session of the IPU Governing Council in 1975.
[120]
At various sessions in 1996,
[129]
1997
[130]
and 1998
[131]
it was decided that the
Palestine National Council
does not fulfill the conditions for membership laid down in Article 3 of the IPU Statutes,
[131]
but in 1998 the rights of the observer delegation of Palestine were strengthened.
[132]
Following the approval of the amendment to Article 3
[133]
in 2008 the PNC was accepted as IPU member.
[134]
- ^
The PLO participated in UNESCO as observer since 1974.
[141]
In 1989 an application was submitted for the State of Palestine to become full member.
[140]
In 2011 UNESCO
accepted the application
.
[142]
[143]
- ^
a
b
For the purposes of
United Nations Regional Groups
arrangement, the Palestine Liberation Organization participates in the Asia group since 2 April 1986.
[146]
[147]
[148]
[149]
- ^
Since 1974 the Palestine Liberation Organization has the status of UN non-state observer entity. Since 1988 its designation in the UN is "Palestine".
[14]
Since 2012
the UN observer mission of the PLO is changed into UN observer mission of the
State of Palestine
,
[150]
whose government is the
Executive Committee of the Palestine Liberation Organization
.
[151]
[152]
- ^
Representation
for "Occupied Palestinian Territory" equivalent to that of a state; assigned the code "ps"
[158]
- ^
The PSI became a subscriber member of ISO in 2001 and a correspondent member in 2004.
[159]
It is still not a full member.
[157]
- ^
Israel has free trade agreements with the EU, EFTA, Turkey, USA, Canada and Mexico. The PNA participates in the
free trade agreement between the United States and Israel
.
- ^
Palestine was accorded membership in
ESCWA
pursuant to
ECOSOC
Resolution 2089 (LXIII) dated 22 July 1977.
[122]
Full powers for the signature of the Agreements were issued by the leaders of the
PLO
and the
PNA
.
[214]
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