The Second Track - The Multilateral Talks in the
Middle East Peace Process
Dr. Joel Peters

Multilateral Talks

The multilateral talks are part of the Madrid Conference, initiated to complement and proceed simultaneously with the bilateral talks. The multilaterals cover a range of regional issues and involve both regional parties and the international community in an effort to deal with areas of cooperation. There is no uniform element to the multilaterals and each area of the talks is very different from the other.

History:
Unlike the first meeting of the talks in Moscow, which were very disorganized and lacked any concrete ideas or conclusions regarding its aims, the multilaterals have developed their own framework and structure over time. Each group has met in full plenary at least six or seven times, and there have been many different inter-sessional meetings. The multilaterals have been conducted with quiet diplomacy, in an attempt to depoliticize the agenda. The talks deal primarily with long-term issues, and have not seen any substantial breakthroughs. Many of the issues, furthermore, tend to be technical and complex, rather than political in nature.

Participation:
The multilaterals were structured in a way to include the involvement of the international community (US, Japan, and the EEC). Every Arab country is a participant, with the exception of Syria and Lebanon: both these countries boycotted the talks, arguing that they were a form of normalization and a reward to Israel, despite the absence of any political achievements. Recently, however, they have taken a quiet interest in the meetings. Although many of the issues under discussion affect these countries, their non-participation has not stopped any progress in the talks. Iraq and Libya were excluded from the negotiations on account of the international sanctions imposed on them.

Essentially, the multilaterals are really made up of the core parties, or two circles - the inner (Arab) and the outer (the international community). Overtime, there has been increased participation by the countries involved, and after 1993, the Arab countries began hosting the various talks and sessions.


Palestinian position:
Although the multilaterals look at long-term rather than short-term issues, the Palestinians have been full participants since the onset of the talks. They realize that they have much to gain from these talks, and it was only recently that the PNA temporarily suspended participation in response to the lack of progress in the bilaterals.

Structure:
The multilaterals cover five main topics. Each of the five working groups has its own agenda and is headed by a gavel holder. The groups and their respective gavel holders are as follows:

Group Gavel Holder

Arms Control/Regional Security (ACRS) US and Russia
Water Resources US
Environment Japan
Regional Development European Community
Refugees Canada

The talks are coordinated by a steering committee, consisting of the four main parties -Palestine, Jordan, Egypt, and Israel - as well as others, including Tunisia and Saudi Arabia. The agendas are as follows:

Arms control/regional security (ACRS):
The ACRS talks were created due to recognition of the fact that any bilateral peace agreement had to be accompanied by a framework for comprehensive regional security. ACRS started at the ground level, discussing the basic rules and issues of concern, such as the need for arms control. The problem was where to begin and how to address issues such as nuclear weapons. The group’s work can be divided into the following:

operational basket: small steps of confidence-building measures, e.g., maritime issues;
conceptual basket: long-term issues;
a declaration of principles: almost reached in the summer of 1994, but left unsigned due to recognition of the slow pace of the bilateral talks and the fact that the timing was not appropriate.

Water resources:
This working group was established because many of the water problems can only be dealt with on a regional level. Its agenda focuses on issues of availability, management, and development of resources. Some problems arose because of the absence of Syria and Lebanon. Much debate has focused on the issue of rights versus supply, but some projects have already been planned, such as a desalination plant in Jordan.

Environment:
The environmental working group discusses issues such as maritime and resource pollution and management. A code of conduct was signed in Bahrain, and many of the region’s environmental issues are addressed in the Declaration of Principles (DoP).

Refugees:
Set up at the request of the Palestinians, the refugee working group operates on the understanding that any comprehensive resolution to the Israeli-Palestinian conflict needs to solve the problem of the refugees. The problem has to be dealt with regionally, and on the basis of UN Resolution 149, which morally affirms the right of return. The group addresses various issues concerning the refugees, such as resettlement and their aggregate rights in other countries (especially Lebanon). It is aware that its solutions will not necessarily be translated into the peace process.


Regional development (REDWG):
REDWG is often described as the group that most reflects the multilateral process. It deals with issues of long-term economic development, and has led to the creation of various regional institutions. REDWG has dealt with the redefining of economic relations in the region, addressing the position of Israel and Palestine in the regional economy. The group realizes that the Palestinian economy must develop in a framework of liberalization, privatization, and private secure development, and that it can grow within a thriving regional economy.

REDWG is divided into four subcommittees, each chaired by a different country and all headed by a monitoring committee/secretariat in Amman. The subcommittees are as follows: finance (Egypt), tourism (Palestine), infrastructure (Jordan), and trade (Israel).

Discussion:

Participant: Have the multilaterals led to any specific results? If there are none, why are the Arabs participating? What results do they anticipate?

Dr. Peters: There are very few concrete results. It is more of a process of defusion, normalization, and socialization. There are however specific spin-offs, for example, REDWG: the World Bank did a study concerning the development of the West Bank and consequently a redevelopment plan was implemented. Joint Israeli-Jordanian-Palestinian-Egyptian development plans brought a need for a development bank. The Arab countries concerned, however, are still a long way off from defining their relationship with Israel. The Palestinians and the Israelis have been scoring political points.

Participant: After the Israeli elections of May 1996, the multilaterals fell apart because essential issues, such as Hebron, refugees, settlements and water issues, had not been resolved. How do all these things fit in with the new Israeli government?

Dr. Peters: Some multilateral working groups have not met since May. The plenary meetings, in addition to the meetings which take place once a year, have not taken place. Many inter-sessional meetings have also not taken place, such as the environment meeting, which was to be held in Gaza but was postponed until December. The stagnation in the bilaterals will affect the future of the multilaterals. The latter cannot go faster than the former.

Participant: Is the current Israeli government interested in the regional dimension?

Dr. Peters: It is very difficult to read this government. One has to separate the government from bureaucracies because there are institutional forces dealing with the multilateral framework. There is institutional learning occurring: the peace process is a learning process from which bureaucracies can derive their own agendas. In addition to the ideology of the government, sometimes one looks at the dynamics that affect functional areas.

Participant: What if Israel engages in multilaterals with Syria?

Dr. Peters: Tourism, for example, is an industry that can be created in a relatively short period of time (two to three years). Syria found itself not involved in the talks on tourism, a sector in which Japan is putting a large amount of money. The problem is the water issue.

Participant: What is the aim of the multilaterals? How can Syria, as part of the Barcelona process, not participate in the bilaterals?

Dr. Peters: Syria attended the Barcelona Conference. In Casablanca, Syria wanted to be a part of the business deals that were being made, but was prevented because of Syria.

Participant: How are the talks funded?

Dr. Peters: The Europeans are the main contributors, but they would like to see an institutionalization of the peace process. The relationship with Brussels is complex, because Europe sees development of this region as part of its security. The question of peace between Arabs and Israelis presents the notion of peace as a very sophisticated endeavor. Not everyone is prepared for this: there are different perceptions and notions of peace which may block the way.

Participant: Will the conflict between the US and Europe lead to progress?

Dr. Peters: There is a vacuum of leadership in the framework of peace - there is an absence of a center of power. We have seen, in the past two days, how Egypt may be the key. The problem with the Middle East is that one cannot predict what will happen more than six hours into the future.

Participant: Why should Palestinians be interested in arms control?

Dr. Peters: Regional frameworks are important for international cooperation, particularly when talking about the arms control process. For example, the transfer of arms and nuclear proliferation are important when talking about a comprehensive regional crisis prevention center or any form of long-term solution. Palestinians insisted on participating, despite the fact that they were not initially involved.