The time to forge a new pathway to resolve the Israeli-Palestinian conflict is now. There can be no return to the status quo before the terrorist attacks by Hamas on 7 October 2023. That status quo was shaped by the international community’s failure over decades to deliver on the promise of ending Israeli occupation and realising a two-state solution, reverting to a conflict management approach that did not address the root causes of the conflict.
There is a stark choice ahead. The Government of Israel is continuing to pursue an unlawful, permanent occupation and annexation of Palestinian territory, based on expansion of illegal settlements, systemic discrimination and the subjugation of one people by another. Israel’s legislation and measures constitute a breach of its international obligations on racial segregation and apartheid. Even if tolerated or supported by some states for too long, this situation will never be accepted by the global community of nations. Instead, it will generate more conflict and support for armed resistance, and Israel will find itself increasingly isolated.
The best alternative is a political solution based on the principles of self-determination, sovereignty and equal rights for both peoples.
There is no military solution to this conflict. Neither people can achieve security and freedom at the expense of the other.
The two-state solution remains the internationally agreed way forward: a fully sovereign, independent State of Palestine alongside the State of Israel, with borders along pre-1967 lines. But the gap between this vision and the reality on the ground means that the majority of Palestinians and Israelis no longer see the traditional two-state solution as a viable option.
The international community cannot keep repeating the failed approaches of the past. It must take active, irreversible steps to end Israel’s unlawful occupation and realise the Palestinian people’s right to self-determination through a form of statehood that delivers true sovereignty on equal terms with Israel.
Securing an immediate ceasefire in Gaza, and ending all violence against Palestinian and Israeli civilians, are urgent priorities. To pave the way for sustainable peace beyond a ceasefire, Israel, all Palestinian factions (including Hamas), and all UN Member States should commit unequivocally to bringing the occupation to an end and implementing a two-state solution.
Bold, principled leadership is urgently needed. New forms of leverage must be applied by members of the international community with influence to address persistent violations of international law and marginalise those on both sides of the conflict who obstruct the pathway to peace.
Visionary thinking and creative solutions are required. These could include a form of two- state confederation, which could address the obstacles inherent in the traditional paradigm of total separation through territorial partition, recognising the attachment of both peoples to their shared homeland. International action should be informed by the ideas of those Israelis and Palestinians who are already working together for peace.
Guiding Principles
Summary
1. Self-determination, sovereignty and equal rights for both peoples must underpin any political solution.
2. Mutual security for both peoples will require co-operative security arrangements based on equal sovereignty and territorial integrity, underpinned by international agreement.
3. Full normalisation of regional relations with Israel must be conditional on ending Israel’s unlawful occupation and realising a Palestinian state.
4. Sustainable peace throughout the region will ultimately require new forms of inclusive regional security dialogue and co-operation.
5. Recognition of the State of Palestine and full UN membership are essential steps to fulfil the Palestinian people’s right to self-determination.
6. The State of Palestine must be unified, sovereign and independent. A reduced form of statehood would undermine security for both Palestinians and Israelis.
7. Governance arrangements in Gaza after hostilities end should support the Palestinian people’s right to self-determination, based on adherence to international law.
8. Democratic processes in Israel and Palestine should be respected, with targeted measures and sanctions in response to systematic violations of international law.
9. Addressing the inalienable rights of Palestinian refugees is central to resolving the conflict and requires, inter alia, full financial and political support for UNRWA.
10. International law and gender equality must underpin all diplomatic efforts to resolve the conflict and be applied consistently by all states.
Detail
1. Self-determination, sovereignty and equal rights for both peoples must underpin any political solution. These mutually reinforcing principles should frame all international efforts to find a political solution. Realising the Palestinian people’s right to self-determination requires ending Israel’s unlawful occupation and annexation of Palestinian territory permanently. A sovereign, independent State of Palestine alongside the State of Israel, with borders along pre-1967 lines, remains the internationally agreed way forward.
2. Mutual security for both peoples will require co-operative security arrangements based on equal sovereignty and territorial integrity, underpinned by international agreement. The foundation of future peaceful relations between Israel and Palestine must be recognition of each other’s equal sovereignty, as with Israel’s treaty arrangements with Egypt and Jordan. Both states must be able to exercise full security control over their respective territories and borders, with a monopoly over the legal use of force, and non- state armed groups disarming or being disarmed. Security assurances provided by the region and international community, including in a transition phase, will need to address the legitimate security concerns of Israelis and Palestinians, recognising the significant asymmetry between the conflict parties. A de-militarised Palestinian state cannot be imposed from the outside.
3. Full normalisation of regional relations with Israel must be conditional on ending Israel’s unlawful occupation and realising a Palestinian state. Normalisation of relations between Israel and Arab states in the region is essential for Israel’s long-term security. But normalisation agreements cannot be a substitute for resolving the Israeli-Palestinian conflict. If normalisation is linked only to symbolic or incremental gains for the Palestinian people, it will contribute to the next cycle of violence, ultimately undermining Israel’s own security. Full normalisation must be conditional on ending Israel’s occupation and realising a Palestinian state, starting with an end to all illegal settlement-building and recognition of the State of Palestine along pre-1967 lines.
4. Sustainable peace throughout the region will ultimately require new forms of inclusive regional security dialogue and co-operation. Security for Israelis and Palestinians would be enhanced by the development of an inclusive regional security approach that is supported by the wider international community, recognising that no state is fully able to defend itself by itself. Iran’s influence on stability in the region, including through non- state armed actors, cannot be addressed effectively through its continued isolation. New approaches will be required, building on the rapprochement between Iran and Saudi Arabia, and working to bring states together across geo-political divides towards a comprehensive regional security framework.
5. Recognition of the State of Palestine and full UN membership are essential steps to fulfil the Palestinian people’s right to self-determination. The minority of UN member states that have not yet recognised Palestine should do so now. Full UN membership for Palestine should be supported by all Security Council members, following the support expressed by the UN General Assembly. Recognition and UN membership are crucial steps for establishing a political horizon and ensuring parity with Israel. They should not be linked to negotiations between the conflict parties, as Israel does not have the right to veto Palestinian self-determination or statehood. Palestinian governance is separate to statehood itself
6. The State of Palestine must be unified, sovereign and independent. A reduced form of statehood would undermine security for both Palestinians and Israelis. This requires:
a) A unified approach bringing Gaza and the West Bank, including East Jerusalem, together by re-establishing political, economic and social linkages between them.
b) The sharing of Jerusalem as an open city and respect by all parties for the status quo, given its special status for adherents to the three major monotheistic faiths.
c) A complete halt to all settlement activity in the Occupied Palestinian Territory in line with UNSCR 2334. Impunity for Israel’s state-sponsored annexation of Palestinian territory through the expansion of illegal settlements must end.
d) Co-operative security arrangements based on equal sovereignty, with no “occupation light” through continued Israeli security control over Palestinian territory.
7. Governance arrangements in Gaza after hostilities end should support the Palestinian people’s right to self-determination, based on adherence to international law. The goal of establishing a unified Palestinian government that oversees Gaza, the West Bank, and East Jerusalem should be supported by all Palestinian factions. International actors should engage constructively with this approach, recognising the reality that Hamas will remain a political actor after hostilities end. Sustainable peace will require reconciliation between the Palestinian factions under the umbrella of a revitalised Palestine Liberation Organization as the sole legitimate representative of the Palestinian people, based on fundamental commitments including recognition of the State of Israel along pre-1967 borders and an end to violence against civilians and terrorism. Any interim regional or international presence must be based on the consent of recognised, legitimate Palestinian authorities and endorsed by the UN, paving the way for self-determination and statehood. Israel’s blockade and siege of Gaza must end completely.
8. Democratic processes in Israel and Palestine should be respected, with targeted measures and sanctions in response to systematic violations of international law. Both Israelis and Palestinians have the right to choose their political leadership through democratic processes. But, on both sides of the conflict, there are political actors who reject and are actively undermining prospects for a two-state solution. Systematic violations of international law continue to be driven by ideology and impunity. International actors must make it clear that whilst elections results will be respected in both Israel and Palestine, targeted measures and sanctions will be applied in response to systematic violations of international law, whether perpetrated by state or non-state actors and entities.
9. Addressing the inalienable rights of Palestinian refugees is central to resolving the conflict and requires, inter alia, full financial and political support for UNRWA. Pending a negotiated solution that addresses the inalienable rights of Palestinian refugees, it is vital that regional and international actors provide sufficient political and financial support for UNRWA to ensure it can deliver humanitarian assistance and services to those it serves, whilst undertaking appropriate reforms, and reject any calls for its dismantling or replacement.
10. International law and gender equality must underpin all diplomatic efforts to resolve the conflict and be applied consistently by all states. There must be an end to longstanding impunity for persistent violations of international law on both sides, reaffirming established norms such as the protection of civilians and civilian facilities, the principle of proportionality in armed conflict, and full reparation for the damages caused by all unlawful acts. All international actors, particularly the five permanent members of the UN Security Council, have a shared responsibility to uphold international law consistently. This means respecting, implementing and enforcing all relevant Security Council Resolutions and all decisions of the International Court of Justice and International Criminal Court. Gender equality must be integrated at all stages of the political and peace process, with the full participation and inclusion of women being a critical requirement to ensure legitimacy and equitable outcomes.
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