Global peace under threat: halting the humanitarian catastrophe in Gaza and addressing the wider conflict in the Middle East
- Author(s):
- Parliamentary Assembly
- Origin
- Assembly
debate on 25 June 2025 (24th sitting) (see Doc. 16210, report of the Committee on Political Affairs and Democracy,
rapporteur: Ms Ingjerd Schie Schou); and Doc. 16212, opinion of the Committee on Migration, Refugees and Displaced
Persons, rapporteur: Mr Paul Galles). Text
adopted by the Assembly on 25 June 2025 (24th sitting).
1. The Parliamentary Assembly expresses
its deep concern about the escalation of the war in the Middle East,
where multiple battlefronts have been active since the appalling
terrorist attack by Hamas against Israel in October 2023, which
the Assembly has unequivocally condemned, and the response by Israel,
which has led to a catastrophic and entirely preventable humanitarian
situation in Gaza. The unfolding multifaceted war involves Israeli
forces as well as terrorist and proxy groups such as Hamas, Hezbollah
and the Houthis, and has caused immense suffering to the civilian
population, particularly in Gaza. The eruption of open military hostilities
between Israel and Iran in June 2025 and the direct military intervention
of the United States of America in this conflict, targeting nuclear
facilities, represent a further alarming development, which could
lead to an even wider conflagration with devastating consequences
for human suffering and the maintenance of international peace and
security, at a time when power politics seem to have overridden
the system of global governance based on international law.
2. The Assembly reaffirms, in line with the values of the Council
of Europe as a defender of human rights, democracy and the rule
of law, its long-standing commitment to peace and regional stability
in the Middle East, and calls on all the parties to this wider conflict
to de-escalate. The Assembly also reiterates the urgent need to
uphold international law, respect human dignity, protect civilians
and reinvigorate multilateral diplomacy in order to avert further
suffering, violence, destabilisation and radicalisation. The solution
to the multiple, deep-seated, long-standing conflicts and challenges
affecting the Middle East cannot be achieved through military confrontation,
but through diplomacy and an inclusive political process aimed at
laying the foundations for durable peace, stability, respect and
reconciliation between peoples.
3. In this context, the Assembly acknowledges the announcement
of a ceasefire between Israel and Iran, and urges all parties to
refrain from any actions that could jeopardise this fragile progress.
4. The Assembly remains gravely concerned by the destabilising
activities of the Iranian regime which, in addition to systematically
denying basic human rights to its population, plays a central role
in fuelling regional and global violence and instability. Through
its sustained support for armed proxy groups across the Middle East,
including Hamas in Gaza, Hezbollah in Lebanon, armed factions in
Syria and Iraq, and the Houthi movement in Yemen, Iran has aimed
to undermine regional security and has contributed to the prolongation and
intensification of multiple armed conflicts.
5. In addition, Iran’s acceleration of its uranium enrichment
programme, in defiance of international commitments, and its growing
co-operation with the Russian Federation in this area raise serious
concerns about its capacity to develop nuclear weapons. By supplying
military equipment to the Russian Federation for use in its full-scale
war of aggression against Ukraine, and by deepening its political
and strategic alignment with Moscow at both bilateral and multilateral
levels, Iran has also emerged as a direct threat to European security.
6. Movements have been reported from Tehran and other parts of
Iran, with many people crossing into neighbouring countries, including
Council of Europe member States. Equally, shelling has caused people
in Israel and the Palestinian territories to seek shelter elsewhere
within the region and, in some cases, abroad. Everything must be
done to avoid another refugee crisis taking root, as such a situation
cannot easily be reversed. The Assembly recalls that further escalation
of the conflict would create additional humanitarian needs in a
region already hosting millions of refugees and internally displaced
people and notes the consequential risks for those people of being
exploited and becoming victims of human trafficking. It is concerned
that, if the conflict persists, existing refugee populations, mainly
from Afghanistan, would also face renewed uncertainty and yet more
hardship.
7. In the face of the unprecedented escalation in Iran, centred
on its unacceptable nuclear ambitions, and the resulting threat
to global security, the international community must not lose sight
of the dramatic fate of civilians in Gaza and that of the hostages
held captive by Hamas and other terrorist militia groups. The Assembly
is convinced that the widening scope of hostilities in the region
should not divert attention from the urgent need to halt the humanitarian
catastrophe in Gaza, nor from the deteriorating situation in the
occupied West Bank and East Jerusalem, nor from the urgent need
to uphold international law and ensure accountability.
8. The Assembly recalls its resolutions, in particular
Resolution 2582 (2025) “The
absolute and urgent need to end the humanitarian crisis for women,
children and the hostages in Gaza”, which have sought a permanent and
unconditional ceasefire and a renewed effort to achieve a political
solution in Gaza. While welcoming the mediation that led to a temporary
ceasefire on 19 January 2025, the Assembly deplores the fact that,
despite these efforts and other expressions of the will of the international
community, Israeli forces continue their disproportionate attacks
on Gaza, with appalling consequences for the civilian population.
The Assembly abhors and condemns in the strongest terms the devastating
toll inflicted: over 55 000 deaths according to figures reported
to the United Nations Office for the Coordination of Humanitarian
Affairs, including 15 000 children according to the United Nations
Children’s Fund (UNICEF). It equally abhors and condemns reported Israeli
attacks on civilians seeking aid, the obstruction of humanitarian
aid, the mass displacement of communities, the water shortage, the
growing likelihood of famine and the widespread destruction of civilian infrastructure,
including housing, hospitals, schools and religious and cultural
sites. These acts cannot be justified under the pretext of self-defence
and appear to constitute grave violations of international humanitarian
law.
9. Aid delivery models approved by Israel’s Security Cabinet,
purportedly designed to bypass Hamas-controlled channels, have violated
core humanitarian principles and have exposed civilians and aid
workers to significant harm. Humanitarian access remains grossly
insufficient amid ongoing hostilities and operational restrictions.
Hospitals in Gaza, targeted by Israeli bombings, have either been
totally destroyed or are completely overstretched, facing critical
shortages of essential medicines and supplies. Additionally, more
than 50 000 pregnant women are facing growing health risks, such
as miscarriage, stillbirth and conditions that can lead to undernourished
newborns. A whole generation risks being sacrificed. Strikes on
distribution sites and the absence of adequate protective measures
have led to mass casualties and the deaths of over 460 aid workers
since October 2023.
10. The expansion of Israel’s military operations in Gaza in May
2025 was met with opposition from large parts of the international
community, and the Israeli Government has been repeatedly called
upon to meet its obligations under international law, including
international humanitarian law. In this context, the Assembly further
recalls the provisional measures indicated by the International
Court of Justice and the issuance of arrest warrants by the International
Criminal Court against senior Israeli officials, as well as against
a senior leader of Hamas. Systemic breaches of fundamental obligations
require accountability.
11. In deploring the catastrophic situation in Gaza, the Assembly
recalls the grave responsibility of Hamas for the war, its rejection
of numerous ceasefire mediation efforts that would provide a pathway
for ending the conflict and its refusal to release the remaining
hostages. In sustaining the conflict, Hamas not only threatens Israel’s
security, but prolongs the appalling suffering and ordeal of the
Palestinian people and undermines the Palestinian project for peace
and statehood.
12. The Assembly emphasises that the prolongation of hostilities,
the intensification of violations of international humanitarian
law, the obstruction of ceasefire negotiations and the continued
captivity of hostages are inflicting intolerable suffering on civilians
and endangering any realistic prospect of restoring stability and securing
a viable political settlement. The protracted nature of the conflict,
combined with disregard for established legal and humanitarian norms,
undermines the effectiveness of the international rules-based order and
represents a threat to global peace and security.
13. The Assembly expresses particular alarm at the approval by
the Israeli Security Cabinet of “Operation Gideon’s Chariots”, which
involves the forcible displacement of the Palestinian population
of Gaza, as well as military occupation of that territory. It stresses
that any such acts would constitute a grave breach of international
humanitarian and human rights law, including the Geneva Convention
Relative to the Protection of Civilian Persons in Time of War of
12 August 1949 (Geneva Convention IV), and would represent a serious crime
under international law. The Assembly underscores that the protection
of civilian populations must remain a paramount concern and that
any policies aimed at demographic engineering or forcible population transfer
are wholly unacceptable.
14. Furthermore, the Assembly remains deeply concerned about the
situation in the West Bank and East Jerusalem, where settler violence,
the closure of all checkpoints and mass arrests and detentions have accelerated
since direct hostilities between Israel and Iran began on 13 June
2025. The Assembly reaffirms its unwavering support for a negotiated
two-State solution as the only viable path to lasting peace and
security. It further stresses that the continued expansion of Israeli
settlements in the occupied West Bank, which remain illegal under
international law, systematically undermines this goal, inflames
tensions and contributes to the broader destabilisation of the region.
15. In light of the escalation of war in the Middle East, the
Assembly:
15.1 expresses its deep
concern about the direct hostilities between Israel and Iran and
about the involvement of the United States of America, and calls
for immediate de-escalation and restraint by all parties;
15.2 acknowledges the announcement of a ceasefire between Israel
and Iran, and urges parties to take steps to ensure its implementation;
15.3 urges all States to refrain from actions that risk regional
conflagration and to pursue diplomatic channels to establish regional
stability;
15.4 stresses that under international humanitarian law all
parties must take all feasible precautions to spare civilians and
minimise their suffering and the number of casualties;
15.5 expresses serious concern about the continued Israeli
military operations in Syria that risk further destabilising a fragile
political transition, and calls on all parties to respect the territorial
integrity of Syria and refrain from actions that may escalate regional
tensions;
15.6 calls for a return to multilateral engagement, particularly
through the United Nations and relevant regional actors, to address
the interconnected crises across the Middle East;
15.7 calls on its member States to send a stronger message
of political support for and solidarity with Iranians who are standing
up for democracy and human rights by, among other things, designating
the Islamic Revolutionary Guard Corps as a terrorist organisation;
15.8 calls on member States to provide co-ordinated support
to Iran’s neighbouring States which are members of the Council of
Europe and which may be called upon to deal with a possible humanitarian crisis
due to the arrival of large volumes of people fleeing the region,
notably by ensuring the timely planning of humanitarian corridors,
fair relocation schemes, protection from exploitation and the risks
of trafficking, and support to frontline States, by ensuring fair
burden-sharing among all member States;
15.9 reaffirms the legal obligations under the European Convention
on Human Rights (ETS No. 5) and the 1951 United Nations Convention
Relating to the Status of Refugees, and calls on member States to uphold
the principle of non-refoulement and
the rights to asylum and to humane treatment, even under increased
migratory pressure.
16. As concerns efforts to reach a political solution in Gaza,
the Assembly:
16.1 repeats its urgent
appeal for the immediate and unconditional release of all hostages
still held in Gaza;
16.2 calls for an immediate and permanent ceasefire in Gaza
to stop the relentless loss of civilian life, end the widespread
destruction of homes and infrastructure, and enable urgent humanitarian
relief to reach all those in need without delay or obstruction;
16.3 urges all parties to engage constructively with mediation
efforts aimed at reaching a comprehensive ceasefire and the release
of all hostages;
16.4 affirms that sustainable peace and stability in Gaza cannot
be achieved while Hamas and other groups designated as terrorist
organisations maintain any governing or operational role.
17. As regards the catastrophic humanitarian situation in Gaza,
the Assembly:
17.1 recalls that
international humanitarian law comprises a set of universal and
binding rules to protect persons and civilian objects, and restricts
the permissible means and methods of warfare;
17.2 calls for Israel’s strict compliance with its obligations
under international humanitarian law and human rights law, and underscores
the importance of holding accountable all those responsible for violations;
17.3 strongly condemns any use of starvation of a civilian
population as a method of warfare, the weaponisation of humanitarian
aid and the unlawful denial of humanitarian access, which constitute crimes
under international law;
17.4 resolutely affirms that there must be no unlawful transfer
or forcible displacement of Palestinians from Gaza, nor any attempt
to alter the territory of the Gaza Strip, including through reduction
or annexation;
17.5 stresses the obligation not to deprive civilians in Gaza
of goods indispensable to their survival, including by wilfully
impeding relief supplies and humanitarian access;
17.6 calls on Israel to take all necessary and effective measures
to ensure, without delay, in full co-operation with the United Nations,
the unhindered and widespread provision, by all stakeholders concerned,
of urgently needed basic services and humanitarian assistance, including
food, water, electricity, fuel, shelter, clothing and hygiene and
sanitation requirements, as well as medical supplies and medical
care, to Palestinians throughout Gaza, including by increasing the
capacity and number of land crossing points and keeping them open
for as long as necessary, and condemns any deliberate obstruction
of these efforts;
17.7 calls for a full, independent and transparent investigation
into fatal attacks near food distribution sites;
17.8 calls for immediate and full access for international
journalists and independent media outlets reporting on Gaza, which
will improve independent and objective reporting.
18. As regards the role of Council of Europe member and observer
States, the Assembly calls on them to:
18.1 respect and uphold their obligations under international
law, including by supporting the work of United Nations organs and
agencies and the work of the International Court of Justice, and
by ensuring respect for the rules laid down in the Geneva Conventions
in all circumstances;
18.2 refrain from obstructing the work of the International
Criminal Court and, for those States Parties to the Rome Statute
of the International Criminal Court, co-operate fully with it;
18.3 continue to support sufficient and adequate humanitarian
funding and the provision of humanitarian assistance to the people
of Gaza;
18.4 facilitate medical evacuations, including the provision
of treatment and transportation, with particular attention to children
and their families, as well as to pregnant women and their families;
18.5 lend their full diplomatic support to a two-State solution
and the creation of the preconditions for a durable and sustainable
peace in the Middle East built on trust, justice and reconciliation;
18.6 use all possible means within their power, including economic
and political leverage, to restore international law, and discuss
progress within the Committee of Ministers.
19. In reaffirming its commitment to a just and comprehensive
peace based on the two-State solution, the Assembly:
19.1 renews with urgency its call
to all parties to refrain from any unilateral measures that undermine the
prospects for the peace process;
19.2 calls for the urgent and resolute engagement of the Israeli
authorities to prevent settler violence and refrain from the building
of new settlements and the expansion of existing ones, home demolitions, forced
evictions and confiscation of land in the occupied territories;
19.3 underlines that the Palestinian Authority is an essential
interlocutor in peace negotiations;
19.4 supports international efforts to prepare the political
horizon for a two-State solution, including those by the Global
Alliance for the Implementation of the Two-State Solution, established
by Norway, the European Union and Saudi Arabia in the margins of
the United Nations General Assembly in 2024.
20. Convinced that the young people and children of Israel and
Palestine deserve a better future, the Assembly will remain committed
to offering a platform for dialogue with the aim of rebuilding trust
and shaping a possible peaceful future.
