Adopting Resolution 2712 (2023), Security Council Calls for ‘Urgent and Extended’ Humanitarian Pauses in Gaza, Immediate Release of Hostages
In a late-breaking meeting today, the Security Council adopted resolution 2712 (2023) by a vote of 12 in favour to none against, with 3 abstentions (Russian Federation, United Kingdom, United States), by which it called for urgent and extended humanitarian pauses and corridors through the Gaza Strip to facilitate the provision of essential goods and services.
Further to the text, the Council called for the immediate and unconditional release of all hostages held by Hamas and other groups, especially children, and urged the parties to refrain from depriving the civilians in Gaza of life-saving services and humanitarian assistance.
Prior to the adoption, the Russian Federation’s delegate introduced an amendment, which he described as the “lowest common denominator, lower than which the Council cannot allow itself to fall”. The language, he said, repeats the General Assembly’s resolution, adopted by a majority on 26 October.
The amendment was defeated by a vote of 5 in favour (Brazil, China, Mozambique, Russian Federation, United Arab Emirates) to 1 against (United States), with 9 abstentions (Albania, Gabon, Ghana, Ecuador, France, Japan, Malta, Switzerland, United Kingdom).
Malta’s representative, introducing the resolution, said it focuses on the plight of children trapped and of those being held hostage. Its passage would enable urgent rescue and recovery efforts and the medical evacuation of sick or injured children and their caregivers, she said.
Following the vote, Council members weighed in on their positions, with Brazil’s representative noting that the Council’s response, commensurate with the gravity of the situation, was urgent since day one. He hoped that, if truly and urgently implemented, the text will at least mitigate the dreadful situation.
The representative of the United Arab Emirates, recognizing that the resolution was adopted through difficult negotiations and compromises on all sides, commended Malta’s leadership. Emphasizing that what emerges from the ruins of Gaza may be the last chance of the Council members to save it, she said that it will need everyone to work together.
China’s representative, noting his support for the text, welcomed any initiative to protect civilians and ease the humanitarian crisis. He, however, was concerned about the siege of the Al-Shifa Hospital and urged Israel to cease its military operations against civilian facilities. The Council should stand on the side of justice, he concluded.
Among the three abstentions to the resolution was the United States, whose representative said she could not vote yes on a text that did not condemn Hamas, which set the conflict in motion. Stressing that the adoption of the resolution will not save lives, she added that to do that, “we all need to support the heroic efforts of the UN and other humanitarian workers in Gaza”.
The Permanent Observer for the State of Palestine emphasized that the Council should have called for a ceasefire a long time ago, stressing that millions of lives hang in the balance. Urging those present to stop the killing and forced displacements and allow humanitarian aid, he said, "These should not be words in a resolution, but a reality on the ground.”
Israel’s representative said that the text focuses solely on the humanitarian situation and makes no mention of what led up to this moment. Underscoring that his country will continue to do whatever it takes to bring the hostages home, he said “should Hamas choose to lay down their arms, turn themselves in, and hand over the hostages unscathed, this war would end immediately”.
Statements
VASSILY A. NEBENZIA (Russian Federation), speaking before the vote, proposed an oral amendment to the operative paragraph 3bis. He said that the text repeats operative paragraph 1 of the General Assembly resolution “Illegal Israeli actions in Occupied East Jerusalem and the rest of the Occupied Palestinian Territory” (document A/ES-10/L.25), adopted on 26 October by an overwhelming majority of votes. “Our proposal does not contain anything unexpected for you,” he stressed, recalling that from the beginning of the crisis, Moscow has been emphasizing the main aim is to achieve ceasefire and end violence. If this provision is not included in the text, it can make an impression that the Council is “happy to make do exclusively with Israel’s provision of humanitarian pauses at its discretion”.
Expressing regret that the United States has consistently blocked any — even the weakest — reference to this aim, he addressed its representative, saying, “During work on Malta’s draft, you struck out anything that could in any way indicate the need for a cessation of hostilities. Does this mean that you are in favour of the war in the Middle East continuing indefinitely?” He said the amendment presented is the “lowest common denominator, lower than which the Council cannot allow itself to fall”. He added, “Our duty is to save the lives of civilians who have a lethal threat hanging above them.” He recalled that most of the Council’s delegations supported the proposed text in the General Assembly.
The oral amendment was defeated by a vote of 5 in favour (Brazil, China, Mozambique, Russian Federation, United Arab Emirates) to 1 against (United States), with 9 abstentions (Albania, Gabon, Ghana, Ecuador, France, Japan, Malta, Switzerland, United Kingdom).
VANESSA FRAZIER (Malta), presenting the draft resolution, said that the humanitarian crisis unfolding in Gaza, ever since the horrific terror attacks of 7 October, is deeply troubling. On that day, children were killed and taken hostage. Since then, more than 4,600 are reported to have been killed in Gaza, and some 1,500 are deemed missing. Many are likely trapped beneath the rubble. The lives of newborn and premature babies at Al-Shifa Hospital are in grave and imminent danger. More than 1 million people are displaced, and more than half are children.
The draft resolution aims to ensure respite from the current nightmare in Gaza and give hope to the families of all victims, she said. It focuses on the plight of children trapped and of those being held hostage. Over the past week, in an effort to achieve a “balanced and operational” text, Malta held extensive consultations with Council members, interested parties, countries in the region and humanitarian organizations. The text is focused and humanitarian in scope. It provides for the establishment of urgent humanitarian pauses and corridors throughout the Gaza Strip for “a sufficient number” of days. Such measures would facilitate the continuous and unhindered provision of essential goods and services, which are important to the well-being of civilians, especially children.
Its passage also would enable urgent rescue and recovery efforts, including for missing children in damaged and destroyed buildings, and the medical evacuation of sick or injured children and their caregivers, she said. The text underlines and reiterates children’s special vulnerable status. It calls for the safe and unconditional release of hostages, especially children, that are being held by Hamas and other groups. This too, is a clear humanitarian imperative which cannot be ignored. International humanitarian law provides general protection for children as persons taking no part in hostilities. They enjoy special protection as persons who are particularly vulnerable. “Our votes today translate into real human lives, the lives of thousands of children, civilians and heroic humanitarian workers,” she stressed.
Ms. NUSSEIBEH (United Arab Emirates), speaking in explanation of position before the vote, said since the start of the conflict the Council has been unable to produce anything that would alleviate the suffering of the people of Gaza and that outside the UN building it looks indifferent to this suffering. Today, the Council has an opportunity to begin changing that perception; it can come together under one aim — the plight of children, which has been the North Star of the Council during this conflict. It can come together for the Palestinian children and other Palestinians sheltering, the Israeli children and other Israelis still hostage, and UN and humanitarian workers trying to alleviate suffering on the ground.
She added that the text is what humanitarian workers have been calling for as the bare minimum to do their work. She highlighted that the resolution will also allow rescue missions for those trapped under rubble and will mean sick and injured children can be evacuated. She noted that the text is unequivocal that all parties comply with their obligations under international law. It also rejects the forced displacement of Palestinians. Many are already refugees, and recently 80 per cent of Gazans have been uprooted again, she added. The monitoring mechanisms provided for in the text can create space for humanitarian actors to do their work. She said that this is an “important and overdue step” by the Council. The United Arab Emirates will vote for the resolution. But a lasting humanitarian ceasefire is still needed, she said.
The Council then adopted resolution 2712 (2023) by a vote of 12 in favour to none against, with 3 abstentions (Russian Federation, United Kingdom, United States).
LINDA THOMAS-GREENFIELD (United States), speaking after the vote, said the world has watched with understandable frustration and increasing concern as the Security Council has been unable to speak out on this pressing matter of international peace and security. “Honestly, I think many have given up hope that we would ever speak on this conflict. But that’s exactly what we just did. We got this done because most of us worked constructively, in good faith, to adopt a resolution.” However, she is horrified that a few Council members still cannot bring themselves to condemn the barbaric terrorist attack that Hamas carried out against Israel on 7 October. “What are they afraid of?” she asked. “Let’s be crystal clear: Hamas set this conflict in motion.”
The United States could not vote yes on a text that did not condemn Hamas or reaffirm the rights of all Member States to protect their citizens from terrorist attacks and will continue to urge the Council to condemn Hamas’ actions. However, the United States did support many of the important provisions, she said, pointing out it is the first adopted text that mentions Hamas. She fully supports the resolution’s call for the immediate and unconditional release of hostages held by Hamas and other groups. The United States has also advocated for humanitarian pauses to allow for full, rapid, safe and unhindered access to civilians in Gaza.
She said her country has clearly stated its expectation that parties to the conflict will abide by their international law obligations. “We’ve been clear at the highest levels: Hamas’ actions do not lessen Israel’s responsibility to protect innocent people in Gaza,” she said. “As Israel exercises its right and indeed its responsibility to protect its people from acts of terror, it must do so in a way that is consistent with the laws of war. I want to be clear: The United States does not want to see firefights in any hospitals.” Ultimately, this resolution is a step forward, but its adoption alone will not save lives, she said. “To save lives, we all need to support the heroic efforts of the UN and other humanitarian workers in Gaza,” she added.
EDWIGE KOUMBY MISSAMBO (Gabon) said that she voted in favour of the draft resolution, adding: “I am delighted that our Council has been able to reach consensus, thus, foregrounding the best interest of these two peoples.” Noting that the text ensures general protection of children — as persons not participating in hostilities — and their special protection as particularly vulnerable persons, she underscored that her country wants to contribute to improving the plight of children. Recognizing that the text does not take into account all the legitimate concerns, she said it nevertheless represents major progress that could make a difference on the ground. In this regard, she encouraged Member States to show greater engagement to silence the guns and establish responsibility.
BARBARA WOODWARD (United Kingdom) said that it is “right” that the Council is calling for a humanitarian pause for a period of days long enough to get life-saving aid to those who need it. “This will save lives,” she stressed. For its part, the United Kingdom has doubled its aid to help civilians in Gaza. All parties must give civilians the protection that is their right under international law. This includes respecting the sanctity of hospitals. She welcomed the resolution’s call for the immediate and unconditional release of Israeli hostages. “It is unconscionable that Hamas continues to hold men, women and children, causing terrible fear and suffering for their families,” she said. This resolution is necessary, though the United Kingdom regrets that it could not clearly condemn Hamas’ terrorist attacks of 7 October. “The barbarity of those attacks should be clear to us all,” she said. That is why the United Kingdom abstained today.
NICOLAS DE RIVIÈRE (France) said his country supported the resolution because the humanitarian situation in Gaza is “already catastrophic”. France is fully mobilized to respond to the urgency of the situation. The resolution mentions several essential needs: food, water, fuel, and medicines, which must be delivered to the Gazan civilians. He called for lasting, unhindered humanitarian access for their delivery in sufficient quantities and for the mobilization of adequate resources.
However, he regretted that several essential messages are not included in the resolution. The Council must continue to work to achieve a broader expression, including condemnation of the Hamas attack, the recall of Israel’s right to defend itself and its population with absolute respect of international humanitarian law, a call for an immediate and lasting truce that could lead to a ceasefire, as well as a call for avoiding regional spillover. There is a need for a decisive relaunching of negotiations on agreed parameters for a two-State solution. “This Council must not remain silent on these elements; it must be demanding and up to what is at stake,” he said......
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