On February 15, 1999, away from the eyes of the press and amidst
stalled political negotiations between the government of Israel and
the Palestinian National Authority (PNA), a new form of cooperation
in Israeli-Palestinian relations took shape. On that day, at City
Hall in Haifa, the Palestinian governor of Jenin and the chief
executives of the Israeli Municipality of Haifa and the regional
councils of Gilboa and Beit She'an, had come together to sign an
agreement which laid out the commitment and guidelines for the
establishment of cross-border cooperation in northern Israel and
the PNA, as a means of encouraging peace and conciliation to the
region.(1)
Entitled "Cooperation North," the formation of this new and, to
date, only such Israeli-Palestinian alliance - touching upon the
lives of approximately half-a-million people - marked the beginning
of a new framework for developing cross-border cooperation in a
shared geographical region. By so doing, it also launched the
possibility of developing a new framework for regional
cooperation.
This paper aims to examine what Cooperation North has achieved on
both a conceptual and practical level, presenting a broad model for
other cross-border areas to duplicate, adapt, or modify. In the
least, it may provide a basis for discussion on how to move from
the experience of conflict and confrontation to that of sustainable
peace.
Motives of Cross-Border Cooperation
The concept of cross-border cooperation is that two border areas
work together in setting priorities and developing programs, rather
than acting separately and seeking cooperation afterward. Its chief
aim is to remove both physical and psychological barriers and
restrictions that contribute to the separation of communities and
nations, as well as to overcome disparities and historical barriers
and redress their imbalances. It involves direct cooperation and
joint decision-making between neighbors in all areas of life and
covers vast issues, ranging from everyday problems of a local
nature to developing joint strategies for regional
development.
Although cross-border cooperation may be new to our region, it has
a long tradition both in Europe and other areas around the world,
including Asia, the United States, and Mexico. In Europe, since the
1950s, there has been a concerted effort to establish organized
cross-border cooperation in border regions, mainly on the
Scandinavian, Dutch/German, and French/German/Swiss borders. In
some countries, such as Spain, Portugal and Greece, cross-border
cooperation became feasible only in the 1980s, as a result of
political changes. In the countries of Central and Eastern Europe,
a similar process is developing; yet it has been progressing at a
slow pace, since the levels of distrust remain high and, in some
areas, conflicts between the parties have yet to be resolved. In
1994, a European Commission initiative with a cross-border
character was also introduced in Northern Ireland and the border
counties of Ireland.(2)
In 1997, through the initiative of the Tel Aviv-based Economic
Cooperation Foundation, the groundwork for an Israeli-Palestinian
concept of cross-border cooperation was laid down. This concept was
rooted in the understanding that in light of the onset of the Oslo
process, with the signing of the Israel-PLO Declaration of
Principles in September 1993, Israel and the future State of
Palestine are in a position where they face these choices: either
to turn their borders into barriers that encourage hostility,
separation, and disparity, or into a venue and focal point for
cross-border cooperation.(3)
Motives of 'Cooperation North'
The opportunity to develop cross-border cooperation between Israel
and the PNA presented itself on the northern axis in the fall of
1998. Under the Rabin government, a brand-new concept was
developed, supporting the establishment of industrial zones along
the border as a means of bringing economic stability and prosperity
to the region. The first industrial zone was planned at Karni in
Gaza and a second industrial estate was planned in the area
bordering the Jenin governorate and the Gilboa Council.(4)
The planned establishment of the northern industrial zone prompted
the Palestinian governor of Jenin and the head of the Israeli
Municipal Council of Gilboa to come together to discuss areas of
mutual concern. For the Palestinian side, the close proximity of
the proposed site to the Israeli side necessitated cooperation in
several areas, including water, electricity, telecommunications,
and the environment. For the Israelis, the close proximity raised
questions on the inevitable ecological and environmental impact,
and the sudden influx of people, goods, and services.
During the Netanyahu administration, the establishment of the
industrial zone was postponed time and again because of a dispute
regarding its designated location. Nevertheless, the dialogue
between the governor and council head led to a shift in Gilboa's
attitude and the subsequent separate and joint lobbying efforts for
its establishment.5 In fact, Cooperation North's first major
breakthrough was to convince the government of Israel under Ehud
Barak to agree to establish the industrial zone at its original
site. In order to provide for full Palestinian control, the Israeli
government also agreed to change the area of the designated site
from Area C to B.(6)
Discussions on the industrial zone opened the door to address other
areas of mutual concern. At the top of the list was the issue of
infrastructure, as both sides acknowledged that questions related
to solid waste, sewage, drainage, water, and electricity could not
be dealt with unilaterally without having a strong impact on the
quality of life of the other side. For example, neither industrial
(particularly hazardous) nor domestic solid waste is adequately
managed on either side. Solid waste is mainly disposed in unlined
dumps, thereby endangering precious groundwater resources and the
ecological system. In combination with the potential environmental
hazards posed by the industrial zone, a real threat to the area's
groundwater from pollution therefore exists in the area.(7)
The question of transportation was also raised. The area's economic
potential is linked to the improvement of transportation links to
local, national, and international markets. Jenin straddles the
road connecting Jordan and the Haifa port and, together with the
northern region, can be viewed as a connecting link between Europe,
the Gulf States and the Far East. To meet the increasing needs of
the region, it is therefore necessary to improve access routes to
Haifa and upgrade links to population and commercial centers in the
region.(8)
The 'Cooperation North' Agreement
Discussions of the above issues led to the recognition by Israelis
and Palestinians that their close proximity necessitates ongoing
cooperation and joint decision-making in a variety of areas that
impact on the quality of life of people on both sides. Cross-border
cooperation would provide the means toward this end and thus it was
agreed to develop a permanent and dedicated framework for pursuing
such cooperation. The first step entailed the signing of an
agreement.
In the preamble, the partners linked their initiative to the larger
political process:
Recognizing that the peace process and the new era that it has
created, as well as the new relationship established between the
two parties, are irreversible and need to be maintained, sustained,
and continued (as expressed in the Israeli-Palestinian Interim
Agreement of 28 September 1995), civic leaders from the Governorate
of Jenin, the Municipality of Haifa, the Regional Council of
Gilboa, and the Regional Council of Beit She'an have agreed to
develop cross-border cooperation (CBC).(9)
This illustrates that by building a new level of cooperation
between local governances, the partners view cross-border
cooperation as an opportunity to jointly support the peace process.
In the agreement, the partners also view the role of cross-border
cooperation as a means toward overcoming "mutual hostility and
prejudice between the communities," and contributing "to the
building of a stable, prosperous, and lasting peace." In doing so,
they aim to involve "a broad and deep cross-section of civil
society actors," to "work together to address all matters of mutual
concern," and to "identify and develop joint projects designed to
strengthen the local economy." As preconditions for successful
cross-border cooperation, the partners agreed to build their
alliance on the basis of "reciprocity, equity, and mutual respect,"
"stability building," and a "shared vision."(10)
The partners also agreed to define and establish permanent
mechanisms to pursue coordinated planning and cooperation in a
variety of areas. These joint mechanisms are in the form of
Cooperation North's joint institutions: the steering committee and
the secretariat.
The steering committee is the joint decision-making body of
Cooperation North, comprising the chief executives of each local
governance, with equal Israeli and Palestinian representation. It
is responsible for "identifying, agreeing, promoting, and
monitoring the implementation of cross-border cooperation
development programs."
The secretariat, the so-called "engine" of Cooperation North, is
based in the office of the governor of Jenin and is staffed by
Israeli and Palestinian coordinators. The role of the secretariat
is to "service the activities of the steering committee and any
working groups established by the steering committee."(11)
The Program of Cross-Border Cooperation
Immediately after the signing, the partners set out to develop a
program that offers a comprehensive approach to cooperation and
thereby peace and conciliation. It is based on the following five
areas:
* Infrastructure planning and coordination as a means of improving
the quality of life on both sides, particularly in the areas of
sewage, drainage, solid waste disposal, water management, as well
as electricity, transport and the preservation of the
environment;
* Business and economic cooperation as a means of promoting
sustainable economic development and balanced regional growth,
particularly in the areas of industrial and technological
relations, strategic planning, tourism, and agriculture;
* People-to-people cooperation as a means of involving constituents
on a grass-roots level in peace and conciliation activities,
particularly in the sectors of youth, culture and sport and
education;
* Civic security cooperation as a means of bringing stability to
the border area;
* Human resource development.(12)
On November 15, 1999, less than a year after its formation, the
European Union agreed to support Cooperation North and its program
of cross-border cooperation.(13)
Impact of 'Cooperation North'
As of spring 2000, Cooperation North has already identified key
areas where both sides agree to make joint decisions and pursue
joint planning. This includes industrial and economic relations.
Accordingly, both sides have agreed to create an ongoing mechanism
of coordination in the areas of cross-border trade, competitive
advantage analysis, service provision, training, marketing, and the
environment.(14)
Progress was achieved with regard to the issues of sewage and
drainage. The ongoing professional dialogue led to a basic
understanding on areas of coordinated planning and, thereby, the
first foundations for the coordinated management of water resources
in the geographical region of Cooperation North were laid
down.
Yet another breakthrough was made in the area of civic security,
where there is a marked increase in levels of theft and smuggling
across the borders. On the Palestinian side, for example, there are
many cases of spoiled meat brought in from Israel and distributed
in the Palestinian market, as well as counterfeit monies being
circulated.(15)
The impact of these illegal activities on the people living in the
geographical area of Cooperation North clearly illustrates the need
for cooperation. To effectively combat these problems, the two
sides have to develop a joint and permanent mechanism of
coordination between the local security forces on both
sides.(16)
Finally, as part of its effort to bring Israelis and Palestinians
together on a grass-roots basis, Cooperation North developed a
school-to-school program titled "Cross-Border Classrooms." This
project is unique in that it marks the first time that a
Palestinian governmental school has agreed to participate in an
ongoing exchange with Israeli governmental schools, despite the
Palestinian Ministry of Education's ban on joint
activities.(17)
Challenges to Cross-Border Cooperation
The experience of building Cooperation North may also provide
insight into challenges facing other cross-border areas. The first
challenge is that movement forward, inevitably, depends on progress
in negotiations between the two sides as deadlocks and delays in
the implementation of the formal peace process ultimately impinge
upon the informal peace process. In the winter of 1999/2000, when
difficulties surfaced on the official track, activities continued
to move ahead on the informal level, yet the pace was slower and
more hesitant.
The second challenge relates to the disparities or asymmetry
between the two sides. This is most acute in terms of
administration, as the national administrative systems differ
considerably, especially in terms of decision-making. Israel's
socioeconomic advantages also have ramifications on all types of
interaction, particularly in the area of local community
initiatives.
Last, but not least, is the challenge of funding - not only in
terms of the actual projects themselves, but also for laying down
the groundwork to launching joint initiatives.18
Conclusion
Today, in the era of peacemaking, the conceptual challenge ahead is
to lay down the foundations for a sustainable peace and to then
consolidate relations. This is not only true in the case of
Palestinians and Israelis, but also throughout the entire region.
It is here that cross-border cooperation has a clear role to play.
Cooperation North - the only cross-border alliance in the region -
with its concept of joint institutions, and comprehensive program
of cross-border cooperation, is a precondition to achieving a
sustainable peace. It therefore constitutes the only existing model
for transforming the status of the border area from that of a
barrier to a bridge for cooperation and stability. It is not an
exclusive northern Palestinian-Israeli framework for cooperation;
rather, it is one that can be turned to as an example to draw from
as each border area and nation is totally unique. Accordingly, the
practical challenge ahead is to see how the model at large can be
adapted or modified, or whether new concepts and structures need to
be developed.
(1) Shmuel Meiri, "PA and Northern Towns Sign Pact,"
Ha'aretz, February 16, 1999.
(2) On cross-border cooperation along the French/German/Swiss
border, see "Regio TriRhena: The European Cross-Border Synergy
France, Germany, Switzerland - Model of Development," May 1999. For
more on the Irish program of peace and reconciliation, see
Commission of the European Communities, "The Special Support
Programme for Peace and Reconciliation in Northern Ireland and the
Border Counties of Ireland (1995-1999)," Brussels, 26.11.1997, COM
(97) 642 Final. On other European areas of cross-border
cooperation, see "Biannual Review," Lace Magazine, No. 2 (Autumn
1998). Also see "Institutional Aspects of Cross-Border Cooperation:
Linkage Assistance and Cooperation for the European Border
Regions," Lace Magazine (March 1999).
(3) Aharon Zohar, "A Border of Peace: Cooperation along the Borders
of Israel, Jordan and the Palestinian Authority," Tel Aviv (January
1999). Draft paper prepared for the "Benelux Project," a
coordinated quadrilateral Israeli-Jordanian-Palestinian-Luxembourg
research project dedicated to examining the relevance of the
Benelux model to the building of an Israeli-Jordanian-Palestinian
framework for cooperation.
(4) See Gershon Baskin and Zakaria al-Qaq, A Reevaluation of the
Border Industrial Estates Concept, IPCRI Commercial Law Report
Series (Jerusalem: Israel/Palestine Center for Research and
Information: 1998), pp. 1-4. US President Bill Clinton launched the
ceremonial opening of the Karni industrial zone in December 1998.
Sagi Chemetz and Amira Hass, "Karni Park Ready for Joint
Israeli-Palestinian Business," Ha'aretz, December 15, 1998. German
President Johannes Rau laid the cornerstone of the Jenin Industrial
Estate on February 20, 2000. Amira Hass, "The Cornerstone of the
Industrial Areas in Jenin," Ha'aretz, February 21, 2000.
(5) "The beginnings of Cooperation North stem back to discussions
between Jenin and Gilboa regarding the JIE [Jenin Industrial
Estate] and Gilboa was instrumental in moving the issue ahead. In
the beginning, we expressed many reservations and after
discussions, understandings were reached that enabled us to
overcome our opposition." Minutes of Cooperation North's 4th
Steering Committee Meeting," Beit She'an Regional Council, January
12, 1999.
(6) "Sharm el-Sheikh Memorandum on Implementation Timeline of
Outstanding Commitments of Agreements Signed and the Resumption of
Permanent Status Negotiations," September 4, 1999. Reprinted by the
Ministry of Foreign Affairs, Jerusalem, 1999. Released via the
Internet at www.israel.mfa.gov.il.
(7) "Cooperation North: Building Links between the Jenin
Governorate, Gilboa Regional Council, Beit She'an Regional Council,
and Haifa Municipality." Prepared under the auspices of the German
Friedrich Ebert Foundation (Tel Aviv, May 1999).
(8) Minutes of meeting with World Bank representatives, Beit She'an
Council, August 16, 1999.
(9) "Cooperation North: Building Links."
(10) Ibid.
(11) Palestinian representatives include the Jenin governor and
representatives of the Palestinian Water Authority, MOPIC, and the
Ministry of Agriculture. Israeli representatives include the mayor
of Haifa, the council heads of Gilboa and Beit She'an, and a
representative of the Economic Cooperation Foundation. To date, the
Cooperation North steering committee has met five times on a
rotating basis.
(12) Minutes of the 1st Cooperation North steering committee, Jenin
Governorate, June 13, 1999.
(13) 53rd meeting of the Med-Committee: Questions and Answers on
Project No. 15. European Union Directorate General, External
Relations, November 15, 1999.
(14) Summary of the Economic and Business meeting, Ramat Yishai,
April 16, 2000.
(15) Minutes of the 4th steering committee meeting.
(16) On February 3, 2000, a workshop on civic security at the Jenin
governorate. The workshop was attended by security officials on
both sides responsible for security on the northern axis.
Discussions were dedicated to identifying where both sides' areas
of priority and concern overlapped. A security expert from the
Regio TriRhena was also invited to participate and present the
concept behind and work of a joint German-French Center for Police
and Customs Cooperation. Sarah Kochavi, "Cooperation in Advancing
Security," HaDaf HaYarok, February 10, 2000.
(17) Minutes of the 3rd steering committee meeting, Gilboa Regional
Council, October 4, 1999.
(18) Minutes of the 5th steering committee meeting.