by Louis Rene Beres -
1st part of 2
Benjamin Netanyahu, the new Prime Minister of Israel, intends to honor those portions of the Oslo Accords that have already become "facts on the ground." Although this intention would appear to support the authoritative expectations of international law, exactly the opposite is true. As the following argument makes clear, international law now requires abrogation, not compliance, with these invalid and illegal agreements.
The Oslo Accords between Israel and the PLO are in violation of international law. Israel, therefore, is now obligated to abrogate these nontreaty agreements. A comparable argument could be made regarding PLO obligations, but this would make little jurisprudential sense in light of that particular nonstate party`s intrinsic incapacity to enter into a legal arrangement with Israel.
Taken by itself, the fact that the Oslo accords do not constitute authentic treaties under the Vienna Convention - because they link a state with a nonstate party - does not call for abrogation. But as the nonstate party in this case just happens to be a terrorist organization whose leaders must be punished for their egregious crimes, any agreement with this party that offers rewards rather than punishments is entirely null and void. Significantly, in view of the peremptory expectation known in law as Nullum crimen sine poena, "No crime without a punishment," the state party in such an agreement - here the State of Israel - violates international law by honoring the agreement.
According to Principle I of the binding Nuremberg Principles: "Any person who commits an act which constitutes a crime under international law is responsible therefore and liable to punishment." It is from this principle, which applies with particular relevance to Hostes humani generis ("Common enemies of humankind") and which originates in three separate passages of the Jewish Torah, that each state`s obligation to seek out and prosecute terrorists derives. Hence, for Israel to honor agreements with terrorists - agreements that require, among other pertinent violations - the release of thousands of other terrorists - is to dishonor the very meaning of international law.
Is Yasser Arafat personally a terrorist? In the U.S. case of Klinghoffer v. Palestine Liberation Organization, the court answered in the affirmative. In the Israeli courts, a petition to charge Yasser Arafat with terrorist crimes was submitted to Israel`s High Court of Justice in May 1994. This petition, filed by Shimon Prachik, an officer in the IDF reserves, and Moshe Lorberaum, who was injured in a 1978 bus bombing carried out by the PLO, called for Arafat`s arrest. The petition noted that Arafat, prima facie, had been responsible for numerous terror attacks in Israel and abroad, including murder, airplane hijacking, hostage-taking, letter-bombing and hijacking of ships on the high seas. The petitioner`s allegation of Arafat`s direct personal responsibility for terrorism was seconded and confirmed by Dr. Ahmad Tibi, Arafat`s most senior adviser: "The person responsible on behalf of the Palestinian people for everything that was done in the Israeli-Palestinian conflict is Yasser Arafat," said Dr. Tibi on July 13, 1994, "and this man shook hands with Yitzhak Rabin."
Terrorism is not the only crime in which Arafat and many of the released Palestinian prisoners are complicit. Related Nuremberg-category crimes, including crimes of war and crimes against humanity, were also committed by these persons. In this connection, the new Prime Minister should recall that units of the Palestine Liberation Army (PLA) served with Saddam Hussein`s forces in occupied Kuwait, making them, and Yasser Arafat personally (the legal principle of command responsibility is known as respondeat superior, or "Let the Master Answer") responsible for multiple crimes of extraordinary horror and ferocity. And if these offenses were not enough of an affront to world law, many of the terrorists now being released from Israeli jails in furtherance of the Oslo accords are immediately accepting high positions in the Palestine Authority`s security forces.
Even if the nonstate party to the Oslo accords were not a terrorist organization, Israel would have entered into an agreement of unequal obligations, an agreement where the PLO would not be held under international law to the same standards of accountability. Several recent federal court decisions in the United States reaffirm that agreements between nonstate and state parties impose asymmetrical compliance expectations. For example, in a concurring statement in the case of Tel-Oren v. Libyan Arab Republic, a 1981 civil suit in U.S. federal courts in which the plaintiffs were Israeli survivors and representatives of persons murdered in a terrorist bus attack in Israel in 1978, Circuit Judge Harry T. Edwards stated: "../...I do not believe the law of nations imposes the same responsibility or liability on nonstate actors, such as the PLO, as it does on states and persons acting under color of state law."
The PLO, of course, is a terrorist organization, and Israel has no right to honor the Oslo accords` requirement to release convicted members of that organization. No government, in fact, has the right to lawfully pardon or grant immunity to terrorists with respect to criminally sanctionable violations of international law. In the United States, it is evident from the Constitution that the President`s power to pardon does not encompass violations of international law, and is limited to "Offenses against the United States." This limitation derives from a broader prohibition that binds all states, including Israel, namely the overriding claims of pertinent peremptory rules stemming from Higher Law or the Law of Nature. These claims are identified in Blackstone`s COMMENTARIES, which acknowledge that all law "results from those principles of natural justice, in which all the learned of every nation agree../..../.."
In its apprehension and incarceration of terrorists, Israel acted, however unintentionally, not only for itself, but on behalf of the entire community of states. Moreover, because some of the jailed terrorists had committed crimes against other states as well as against Israel, the government in Jerusalem cannot possibly pardon these offenses against other sovereigns. The Jewish State, therefore, possesses absolutely no right to grant immunity for terrorist violations of international law. No matter what might be permissible under its own Basic Law and the Oslo accords, any freeing of terrorists is legally incorrect. By its freeing of terrorists, Israel is guilty of what is known in law as a "denial of justice."
Israel`s obligation to abrogate the Oslo accords, as we have seen, stems from certain peremptory expectations of international law. Israel, however, has substantial rights of abrogation here apart from such expectations. These rights derive from the doctrine of Rebus sic stantibus. Defined literally as "So long as conditions remain the same," this doctrine of changed circumstances now augments Israel`s obligations to cease compliance with Oslo. This is because Israel`s traditional obligations to the accords ended promptly when a fundamental change occurred in those circumstances that existed at the effective dates of the accords and whose continuance formed a tacit condition of the accords` ongoing validity. This change, of course, involved multiple material breaches by the PLO, especially those concerning control of anti-Israel terrorism and extradition of terrorists. In short, Rebus sic stantibus has become pertinent for Israeli abrogation because of the profound change created by the PLO in the very circumstances that formed the cause, motive and rationale of consent.
According to Oslo expectations, Arafat should be actively committed to control of anti-Israel terrorism. Yet, as THE JERUSALEM POST pointed out correctly in a mid-March 1996 editorial, "Arafat not only shelters terrorists; he lets them incite, recruit, organize, train, arm, raise funds, and launch operations from areas under his control. This is now indisputable."
The "head of the snake," admitted former Prime Minister Shimon Peres, "is in Gaza." And it is in Gaza, PLO-controlled Gaza, that Hamas - allegedly at odds with PLO - has been fomenting much of its terror campaign against Israel. It is the Palestinian security services that sustain this Hamas campaign. In the words of THE JERUSALEM POST:
"It was the Hamas leadership in Gaza which decided on terrorist strikes and issued operational orders for the bus bombings. It was in Gaza that the Hamas military organization trained suicide bombers and assembled explosives. It was in Gaza that "the engineer" Yihye Ayyash found shelter until he was killed, and where his successor Mohammed Dief has been living openly. It was in Gaza that Arafat`s Preventive Security chief was negotiating with Dief - a close friend - both before and after the first bus bombing. He knew of Dief`s involvement in the bombing and did nothing either to detain him or prevent the next outrage."
Israel`s obligation to terminate the Oslo accords stems also from a related principle of national self-preservation. Under this peremptory norm, any agreement may be terminated unilaterally following changes in conditions that make performance of the agreement injurious to fundamental rights, especially the rights of existence and independence. Known in law as "rights of necessity," this norm was explained with particular lucidity by none other than Thomas Jefferson. In his "Opinion on the French Treaties," written on April 28, 1793, Jefferson stated that when performance, in international agreements, "becomes impossible, nonperformance is not immoral. So if performance becomes self- destructive to the party, the law of self-preservation overrules the laws of obligation to others." Later, in that same document, Jefferson wrote: "The nation itself, bound necessarily to whatever its preservation and safety require, cannot enter into engagements contrary to its indispensable obligations." Israel, the reader should recall, has an "indispensable obligation" to endure.
Louis Rene Beres
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