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Security Council Hears Briefing from Commissioner-General of Relief and Works Agency for Palestine Refugees in Near East

Meetings Coverage
Security Council

9607th Meeting (PM)

SC/15668
17 April 2024

(Note: Due to the financial liquidity crisis affecting the United Nations and the resulting time constraints, the full press release will be published at a later date.)

The Security Council met this afternoon on the situation in the Middle East, including the question of Palestine. The Council heard a briefing from Philippe Lazzarini, Commissioner-General of the United Nations Relief and Works Agency for Palestine Refugees in the Near East.

THE SITUATION IN THE MIDDLE EAST, INCLUDING THE PALESTINIAN QUESTION

Briefing

PHILIPPE LAZZARINI, Commissioner-General of the United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNRWA), stressed that UNRWA is a stabilizing force at a time of "seismic change" in the Middle East. It is the backbone of the humanitarian operation in Gaza and, beyond the Strip, it has championed human development for Palestinian refugees for decades. He pointed out, however: "Today, an insidious campaign to end UNRWA's operations is under way, with serious implications for international peace and security." While six months of relentless bombardment and a merciless siege have transformed Gaza beyond recognition, while its children are bearing the brunt of this war, and while a man-made famine is tightening its grip across the Strip, UNRWA is denied permission to deliver aid and save lives despite the food and clean water waiting across the border.

While observing that an "overwhelming" majority of Member States support UNRWA's mandate, he pointed out that the Agency is facing a campaign to push it out of the Occupied Palestinian Territory. Israel seeks to end UNRWA's activities in Gaza, the Agency's requests to deliver aid to the north are repeatedly denied, staff are barred from coordination meetings between Israel and humanitarian actors and, worse, UNRWA premises and staff have been targeted since the beginning of the war. On that, he reported that 178 UNRWA personnel have been killed, and more than 160 UNRWA premises — mostly used as shelters — have been damaged or destroyed. Further, UNRWA personnel detained by Israel have shared harrowing accounts of mistreatment and torture in detention. Demanding an independent investigation and accountability for the "blatant disregard" of the protected status of humanitarian workers, operations and facilities, he stressed: "To do otherwise would set a dangerous precedent and compromise humanitarian work around the world."

Turning to the "serious allegations" against individual UNRWA personnel that emerged in January, he reported that he immediately terminated the appointments of those concerned. Further, the Secretary-General ordered an investigation and, in parallel, an independent review group is assessing how UNRWA upholds neutrality. He pointed out, however, that — despite these prompt and decisive actions — a significant amount of donor funding remains suspended. "This has serious operational implications and undermines the financial sustainability of the Agency," he stressed, adding that calls for UNRWA's closure are not about adherence to humanitarian principles. Rather, they are about ending the refugee status of millions of Palestinians. "Accusations that UNRWA deliberately perpetuates refugee status are false and dishonest," he stated, underscoring: "The Agency exists because a political solution does not."

Recalling that UNRWA was created 75 years ago as a stop-gap measure pending a political answer to the question of Palestine, he said that the Agency can "retrieve its temporary nature" if the international community truly commits to a political solution. To that end, he called on Council members to safeguard the Agency's critical role "both now and within the framework of a transition"; to commit to a genuine political process; and to acknowledge that a political process alone will not guarantee sustainable peace. "Instead, we must recognize — and reflect in our words and actions — that Palestinians and Israelis share a long and profound experience of grief and loss," he urged.

Statements

IAN BORG, Minister for Foreign and European Affairs and Trade of Malta, Council President for April, speaking in his national capacity, said UNRWA is an "indispensable lifeline" for Palestinian refugees in Gaza and the region, and a stabilizing force there. Malta continues to be a regular contributor to the Agency. "Preserving the life-saving role and operations of UNRWA must be our primary objective," he said. The failure to uphold the rules of law in Gaza is evident in the continued onerous, arbitrary, and bureaucratic impediments preventing the scaling up of humanitarian aid. He welcomed investigations into allegations of UNRWA staff involvement in the 7 October attacks and an independent review into its adherence to the principle of neutrality and called on all parties to fully cooperate with the inquiries. He appealed to those who suspended contributions to UNRWA to resume "desperately-needed" funding and ensure that the Agency has the necessary resources to operate. In that regard, Malta recently issued a further financial contribution. "In these difficult times, we need to avoid politicizing the work of humanitarian actors," he said.

AHMED ATTAF, Minister for Foreign Affairs and National Community Abroad of Algeria, said that UNRWA "embodies the ideals and values on which this Organization — this house of humanity — is built". Further, it is the best and most authentic witness of the modern Nakba that Palestinians are enduring. However, the Agency is being shamefully targeted by the expansionist occupying Power — Israel — who is destroying its facilities, killing its staff and using pretexts to end its very existence. He stressed that the Agency is targeted because it is inextricably linked to resolutions that enshrine Palestinians' right to return to their homeland, and because it is a key component of "Israel's plot to liquidate the Palestinian cause". Against that backdrop, he called on the international community to protect UNRWA, facilitate its vital activities and guarantee it long-term, sufficient funding through the regular budget. He added that his country will contribute an additional $15 million for UNRWA, which must continue its work "so long as there are Palestinian refugees".

TSUKASA UEMURA, Special Envoy for Middle East Peace of Japan, said the crisis in Gaza has meant that "human dignity, to which Japan attaches great importance, is under threat", with a growing risk of destabilization of neighbouring countries. He noted that UNRWA is "extremely important" in providing humanitarian assistance. Turning to the allegations against UNRWA staff, he appreciated the progress being made to strengthen the Agency's governance. He welcomed the interim report of the Independent Review Group and UNRWA's Action Plan. Japan lifted its suspension of funding to the Agency on 2 April and has already disbursed some $35 million. It will provide aid to improve sanitary conditions in Gaza and medical services in the West Bank, Jordan, Syria and Lebanon. Considering the Independent Review Group's final report to be presented on 20 April, he underlined that his country will continue to support UNRWA's reform efforts and contribute to training to strengthen the neutrality of front-line management staff. Since 7 October, Japan has contributed over $100 million in aid to the Palestinian people.

The representative of the Russian Federation pointed out that, despite the Council's demands in resolution 2728 (2024), military hostilities in Gaza are escalating. Under these conditions, the delivery of humanitarian assistance to the enclave's people is practically impossible, and UN agencies are saying — in unison — that human access is non-existent. According to the Office for the Coordination of Humanitarian Affairs, the Israeli Defense Forces are blocking half of the convoys heading to the Gaza Strip. "We have warned time and time again that, in the absence of a lasting and sustainable ceasefire — which must be duly monitored by military observers — all of our humanitarian efforts are doomed," he said. No voluntary deconfliction can help when one party is intent on continuing hostilities — especially when a Council member signals that Council resolutions are supposedly "non-binding". Against that backdrop, he stressed that attempts to label UNRWA a terrorist organization or close it down are "categorically unacceptable".

The representative of Ecuador hoped the investigation into the allegations against UNRWA staff will establish the facts and anyone found guilty be brought to justice. The final report of the Independent Group must be carefully analysed as its recommendations will be extremely important. He said that UNRWA's work is "vitally important". "For this reason, I reiterate my call to those who can do so to contribute to financing its operations, which is an important factor contributing to stability in the whole region," he added.

The representative of the United States stressed: "Humanitarian personnel must be protected — full stop." For that reason, the resolution the United States recently introduced demanded all parties to respect humanitarian notification and deconfliction mechanisms. "Although Russia and China vetoed that resolution, we repeat that call today," he said. Expressing concern that Israel has not done enough to protect humanitarian workers or civilians, he called on that country to implement a series of steps to address harm to such individuals. "United States policy with respect to Gaza will be determined by Israel's immediate and sustained action on these steps," he said. The United States paused additional funding to UNRWA due to serious allegations that its personnel participated in the 7 October attacks, he recalled, urging the Agency and the wider UN system to take all steps necessary to strengthen the Organization's neutrality and improve UNRWA's sustainability. Nevertheless, he recognized the Agency's "indispensable" role in Gaza and called for the lifting of "onerous restrictions on its work".

The representative of Slovenia called UNRWA a "factor of stability" in the region, noting the Agency's s work is mandated by the UN General Assembly. "It needs to be respected," he said. Underscoring the general agreement that UNRWA has become indispensable because of its resources, experience and knowledge, he noted that non-governmental organizations in Gaza say they are unable to substitute for or absorb its role. The Secretary-General and UN entities say that the Agency is the backbone of the humanitarian response in Gaza. Slovenia takes the allegations against UNRWA staff seriously and looks forward towards further strengthening the Agency's neutrality and transparency. His country has maintained funding for UNRWA. He urged other countries to do the same and new donors to come forward, stressing: "It is about the survival of civilians in Gaza." He expressed concern that UNRWA's work faces obstacles. The Agency's staff, and all humanitarian and medical personnel working in Gaza, "are the face of humanity in this conflict", he added.

The representative of Mozambique expressed concern over attacks on UNRWA's work, restrictions placed on its personnel and limits on its funding, which significantly undermine its ability to carry out its vital humanitarian mission. Underlining the need to build trust and confidence between Israel and UNRWA, he said that — while balancing security concerns with humanitarian imperatives remains a complex challenge — dialogue and collaboration are crucial. Members of the international community, therefore, must reconsider their positions to ensure that humanitarian assistance reaches those in need. "Let us work towards a path of peace that prioritizes humanity above all else," he urged.

The representative of Sierra Leone underscored that UNRWA's ability to provide adequate humanitarian assistance to civilians in Gaza and elsewhere has been affected by the indiscriminate bombardment and collective punishment of the Strip since the 7 October Hamas attacks. Noting the allegation of the involvement of a small number of its personnel in the attacks, which has led to the suspension of funds by some major donors, he called on all those donors to reconsider that decision. No other agency or entity can replace UNRWA, he emphasized, describing its work across the region as "immeasurable and lifesaving". Concurrently, he stressed the need for an immediate permanent ceasefire in Gaza and the implementation of resolutions 2712 (2023), 2720 (2023) and 2728 (2024).

The representative of the United Kingdom, stating that UNRWA's mandate "remains as important as ever", recognized that the Agency is critical to aid delivery in Gaza and should have unhindered access. The United Kingdom remains committed to increasing humanitarian aid to Gazans. "We call on Israel to allow UNRWA and all agencies providing humanitarian relief unhindered access in Gaza, particularly to the north [...] to increase aid flows and enable the UN's minimum operating requirements, so that humanitarian agencies can operate safely," she said. UNRWA's health and education services and humanitarian relief across the region are important for regional stability, and of particular importance at this critical time. She emphasized the importance of UNRWA putting in place robust management reform actions, including stronger independent oversight and better detection systems. She looked forward to the findings of the independent review, after which her country will clarify its position on funding.

The representative of China observed that "amidst the gloom of war and death, the light of humanitarianism has never faded". UNRWA is the backbone of the humanitarian response in Palestine and is indispensable for humanitarian assistance to Gaza. He therefore urged Israel to cease restricting the Agency's work and, while expressing support for an independent, impartial investigation into allegations against UNRWA staff, stressed that the same must not have a predetermined conclusion or undermine the Agency's work. "Individual cases should not overshadow the big picture," he underscored, rejecting both "malicious attacks" on UNRWA in the absence of solid evidence and the use of such investigation as a pretext to launch unfounded accusations against the entire UN system. He also called on Israel to adhere to the demands of resolution 2728 (2024), and on the United States to "make sincere efforts in this regard".

The representative of France underscored that unhindered humanitarian access and delivery must be guaranteed to meet the immense needs of the civilian population of Gaza, particularly in the north of the enclave. For 75 years, UNRWA has played an indispensable role for the 5.9 million Palestinian refugees in the Occupied Palestinian Territory, Lebanon, Syria and Jordan, she observed, adding that France will pay its annual contribution for 2024 to enable the Office's humanitarian operations to continue. Turning to the allegations that some of the UNRWA employees participated in the 7 October terrorist attacks, she demanded that all light be shed on these accusations and that strong measures be implemented without delay. In this regard, she took note of the interim report of the independent external audit conducted by Ms. Colonna, whose conclusions will be made public on 22 April.

The representative of Switzerland said to help meet the huge needs due to the catastrophic humanitarian situation in Gaza her country has allocated an additional $100 million in aid for the Middle East. She underscored that UNRWA is critical to humanitarian work in Gaza and preventing further destabilization in the region. Expecting the Office of Internal Oversight Services (OIOS) to fully shed light on the allegations against UNRWA staff, she looked forward to the swift conclusion of the OIOS investigation and the independent review, with diligent implementation of their respective recommendations. She underlined that all parties must allow unimpeded humanitarian access, including in northern Gaza. "It is high time for the parties to the conflict to strictly respect international law, in particular human rights and international humanitarian law," she said, stressing: "Every occupying Power has an obligation under international humanitarian law to meet the basic needs of the population under its control".

The representative of Guyana said it is "troubling" that several UNRWA premises have been directly attacked despite the Agency's provision of their coordinates through the UN humanitarian notification system. Underscoring that "there should be no impunity for such brazen disregard of international law", she also expressed concern over the ongoing campaign to discredit and dismantle UNRWA. The Agency has been accused of involvement in the 7 October attacks without any credible evidence. "While it is the right of any Member State to voice concerns about the operation of any UN agency, Guyana underscores that there is also a concomitant responsibility to ensure that those concerns are substantiated," she stressed. Adding that UNRWA's indispensable existence for the last 75 years is a "reminder that the international community has not yet delivered justice to the Palestinian people", she stressed that any attempts to dismantle the Agency should simultaneously align with the delivery of such justice.

The representative of the Republic of Korea said that since the outbreak of the military operation by Israel in Gaza, and before the announcement of the allegations that some of UNRWA staff members participated in the heinous terrorist attacks, "no one denied the Agency's indispensable role in assisting Gazan civilians in despair". Despite the serious allegations, UNRWA's devotion has not changed — with its 13,000 staff members in Gaza, 178 of whom were killed in this conflict, it remains the core agency in international humanitarian efforts in Gaza. Accordingly, the Republic of Korea has provided consistent and increased assistance to the Agency, including $5 million at the beginning of 2024. He welcomed the Secretary-General's appointment of an independent Review Group to assess UNRWA's neutrality, and expressed hope that the swift release of the interim report by OIOS will once again ensure UNRWA's credibility.

Taking the floor for the second time, the representative of the Russian Federation, in response to remarks of the delegate of the United States, said he regretted Washington D.C.'s attempt to sow disinformation. He said assertions that the Russian Federation and China vetoed the United States draft resolution, and as a result the Council could not protect humanitarian workers "are blatant lies and manipulation". He said it is not the first time that the United States delegation is trying to trick the international community. "It is regrettable that American diplomacy has sunk so low," he said, adding that by acting in this fashion Washington, D.C., is becoming directly complicit in the killing of over 200 humanitarian workers and 30,000 civilians in Gaza.

The representative of the United States, taking the floor for the second time, in response to the remarks of the Russian Federation, said it is a fact that the Russian Federation vetoed the resolution. But, he said, to blame the United States for the situation in the region is totally unfair "but it's typical of Russian disinformation activities".

ZIAD ABU AMR, Special Representative of the President for the State of Palestine, said he would be "remiss" to call for an immediate ceasefire in Gaza, the unobstructed delivery of humanitarian assistance and the implementation of relevant Council resolutions. "No innocent can be saved, no relief can be provided, no famine can be stopped in Gaza" so long as Israel continues targeting civilians, homes, infrastructure, schools, shelters, hospitals, humanitarian facilities, rescue teams and medical staff, he observed. Israel must therefore be pressured to respect international law and cease its policy of collective punishment and its use of famine as a weapon of war. He also called for serious steps to open all border crossings into Gaza and to compel Israel to carry out its obligation to provide basic services to those under occupation, asking: "Isn't it high time for this killing, destruction and displacement to stop?"

Recalling that the General Assembly established UNRWA in 1949, he said that the relevant resolution made clear when the Agency should be terminated — "when the question of Palestinian refugees is solved". The Agency "is not a mere humanitarian project", he urged; rather, it is a witness of the international community's commitment to Palestinians who had to leave their homeland until a just, comprehensive solution is found for their cause. Underscoring that UNRWA is the only UN agency with the skill, readiness, operational capacity, experience and expertise to carry out humanitarian work at such a large scale, he added that the Agency is "the best thing the UN can do during these circumstances". Emphasizing that Israel's campaign against UNRWA is neither new nor secret, he called on those who have suspended funding while the investigation is under way to reverse that decision as "no other operational structure can carry out such a humongous task".

The representative of Israel said the UN not only failed in advancing a solution but is directly responsible for perpetuating the conflict and ensuring that the Palestinians will continue to reject any peace plan or compromise. One of the UN's weapons to protract this conflict is UNRWA — "an instrument of war" — whose goal is not aid or education. In practice, the Agency is creating a sea of Palestinian refugees indoctrinated to believe that "Israel belongs to them". He emphasized that just because UNRWA has "a thin layer of Europeans in charge of collecting donations and garnering support", it is a Palestinian organization, "fully committed to Israel's destruction". One of its primary goals is to brainwash Palestinian children into believing that the war of 1949 is not over and that they are still refugees 76 years later, even though they were born in Gaza or other countries. However, he asked: "How can there be a Palestinian refugee in Gaza? A place with no Israeli control."

He stressed that UNRWA is the world's most prominent advocate for a one-State solution — that is, "a Palestinian State from the river to the sea". There are Palestinians today with Jordanian, United States and Swedish passports — yet, they remain on UNRWA's roster as Palestinian refugees, he observed, adding that "this dysfunctional system has no parallel anywhere else in the world". He called on States to diminish the problem instead of keeping it alive, stating: "You are providing aspirin to a body contaminated with cancerous cells." Today in Gaza, "UNRWA is Hamas and Hamas is UNRWA", he said, noting that the Agency has become part of the terror war machine. Meanwhile, Israel has shared evidence that 17 per cent of the Agency's employees in Gaza are members of terror groups, he said, declaring: "The time has come to defund UNRWA."

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