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A recently leaked internal document from the European Union’s foreign policy division suggests that Israel may be violating human rights obligations outlined in the EU-Israel association agreement. While stopping short of imposing sanctions, the EU’s findings indicate growing concern over Israel’s actions in Gaza, particularly amid ongoing civilian casualties and a prolonged blockade. The document, set to be presented by EU foreign policy chief Kaja Kallas to European ministers, highlights assessments from global human rights institutions and has reignited calls for a stronger EU response, including trade restrictions and review of cooperative agreements.
I. EU’s Assessment and Human Rights Concerns
1. Cautious Language, Serious Implications
Though framed with characteristic diplomatic restraint, the leaked EU paper represents a significant shift in Europe’s position toward one of its closest allies in the Middle East. The document references potential breaches of Article 2 of the 1995 EU-Israel Association Agreement, which binds both parties to uphold human rights and democratic values. It draws on findings from the International Court of Justice, the UN High Commissioner for Human Rights, and other United Nations agencies but clarifies that it does not constitute an official value judgment from EU representatives.
2. Triggering the Review: Civilian Casualties and Blockade
This internal review follows a proposal backed by 17 EU member states, led by the Netherlands—a country historically aligned with Israel. The immediate catalyst was Israel’s continued military campaign in Gaza, which has reportedly killed over 55,600 people, most of them civilians, since October 2023. The blockade of Gaza, combined with repeated fatal incidents involving Palestinians trying to access food, has heightened scrutiny and driven a reassessment of the EU-Israel relationship.
II. Political Dynamics Within the EU
1. Complications from Iran Conflict
Israel’s recent military operations against Iran have added complexity to EU deliberations. European Commission President Ursula von der Leyen reiterated Israel’s right to defend itself shortly after these developments, reflecting the EU’s cautious approach to alienating Israel at a volatile moment. However, critics argue that this stance has muted the EU’s voice on the worsening humanitarian situation in Gaza.
2. Challenges to Unity Among Member States
While the review signals mounting pressure, the EU remains fragmented on how to respond. Member states such as Spain and Ireland, which have recognized Palestine, support a firmer line, while others—like Hungary, the Czech Republic, and Germany—remain strongly pro-Israel. This division has repeatedly undermined attempts at forming a unified EU policy on the Israeli-Palestinian conflict.
3. The Dutch Shift and Rising Public Pressure
One of the most pivotal moments in this process was the decision by the Netherlands to push for the agreement review. Foreign Minister Casper Veldkamp, a former ambassador to Israel, stated that Israel’s blockade of Gaza violated international law and should prompt a reevaluation of existing EU obligations. His stance followed one of the largest foreign policy protests in Dutch history, reflecting a dramatic shift in public opinion and government priorities.
III. Trade and Partnership Under Scrutiny
1. Economic Ties and Legal Framework
The EU-Israel Association Agreement has underpinned a robust €68 billion trade relationship. The EU is Israel’s largest trading partner and provides access to significant research funding through the Horizon Europe program, from which Israel has secured over €831 million since 2021. The association agreement, however, requires mutual adherence to human rights and democratic norms, opening the door for potential suspension if violations are confirmed.
2. Advocacy Groups Call for Immediate Action
Pressure has intensified from civil society. Over 100 advocacy organizations—including Amnesty International and Human Rights Watch—have called for a suspension of the agreement. Their joint statement warned that failure to respond meaningfully would damage the EU’s credibility and encourage further violations by Israeli authorities. Amnesty’s EU chief, Eve Geddie, criticized the EU for acting too late and warned that Israel has grown increasingly emboldened over time.
3. Proposals to End Trade With Settlements
Separate from the association agreement review, eight EU countries have urged the EU to discontinue trade involving goods and services from Israeli settlements in the occupied Palestinian territories. Spearheaded by Belgium, the letter emphasized the EU’s legal obligation to follow the International Court of Justice’s 2023 advisory ruling that called on Israel to end its occupation. The signatories asked the EU to establish a timeline to achieve full compliance by the opinion’s one-year anniversary.
IV. Limits of EU Action and Internal Opposition
1. Veto Risks and Institutional Hurdles
A complete suspension of the EU-Israel agreement is unlikely due to the requirement for unanimous support among all 27 member states. With countries like Hungary, the Czech Republic, and Germany expected to veto such measures, stronger action remains improbable. However, the EU could act on certain elements, such as preferential trade terms or participation in research programs, using a qualified majority vote—though this, too, faces uncertainty.
2. Skepticism From EU Parliament Members
Opposition to disrupting relations with Israel also comes from within EU institutions. Hildegard Bentele, a German center-right Member of the European Parliament and chair of the EU-Israel delegation, voiced concern that challenging the agreement could diminish the EU’s diplomatic leverage without affecting Israeli policies. She warned that such actions could weaken Europe’s influence rather than prompt meaningful change.
3. Horizon Europe and Research Partnerships at Risk
Among the partnership components under scrutiny is Israel’s involvement in the Horizon Europe research initiative. While symbolic, suspending this collaboration would be a significant diplomatic signal, impacting academic and technological cooperation that benefits both sides. Yet even this targeted response has not garnered sufficient consensus within EU leadership.
V. Rising Momentum for Accountability
1. Gradual Shift in EU Policy Tone
Although a full break with Israel appears politically out of reach, the tone within EU institutions is clearly shifting. The Netherlands’ position, supported by a growing number of member states, has redefined what was once a fringe debate into a mainstream diplomatic concern. This growing divide is pushing Brussels to reevaluate its commitments and legal responsibilities under the association agreement.
2. International Law as a Guiding Principle
The pressure to act stems in part from legal interpretations of the EU’s own obligations. Article 2 of the EU-Israel agreement mandates adherence to international human rights principles. As civilian deaths in Gaza mount, and legal bodies like the ICJ issue critical rulings, the EU faces mounting legal and moral pressure to hold Israel accountable—or risk undermining its own legal frameworks.
Conclusion
The European Union stands at a critical juncture in its relationship with Israel. While definitive action—such as suspending the association agreement—remains uncertain due to internal divisions, the growing scrutiny over Israel’s conduct in Gaza has sparked a deeper reckoning within EU institutions. The leak of the internal assessment and pressure from civil society and member states indicate that Europe can no longer ignore the human rights implications of its diplomatic and economic ties. Whether the EU will take meaningful steps to align its policies with its stated principles remains to be seen, but the conversation has clearly entered a new phase.
