Introduction
From 1 January 2023, Japan started its two-year term (2023-24) as one of the 10 elected non-permanent members of the United Nations Security Council (UNSC). This was Japan’s 12th time serving in the UNSC, which is more than any other UN member state.[1] It was also in the month of January 2023 when Japan held its first rotating Presidency of the UNSC for their current term. The presidency of the Council is held by each of the members in turn for one month, following the English alphabetical order of the Member States names.[2] For the second time during its current term as an elected non-permanent member of the UNSC,[3] Japan held the rotating Presidency of the UNSC in the month of March 2024.
In addition, the Republic of Korea (ROK) started its two-year term of 2024-2025, from 1 January 2024. After 11 years, this is the ROK’s third time serving in the UNSC; the first time was from 1996 to 1997 and the second from 2013 to 2014.[4] The ROK is scheduled to hold the rotating presidency of the UNSC in the month of June 2024.[5] The year 2024 therefore marks the first time since 1997[6] that Japan and the ROK are working simultaneously as elected non-permanent members of the UNSC.[7] In particular, in 2024, the ROK, the U.S. and Japan will simultaneously serve as members of the UNSC for the second time after 1997.[8]
Resolution on Gaza Ceasefire
On 25 March 2024, under the rotating Presidency held by Japan, for the first time on the issue of an immediate ceasefire in Gaza, there were no vetoes, only one abstention. The UN Security Council Resolution 2728 (2024) tabled by the 10 non-permanent elected members known as the E-10, demanding an “immediate ceasefire in Gaza”, was adopted with 14 votes in favour[9] and one abstention (United States), thus ending months-long deadlock. The ROK and Japan were amongst the 14 members of the Security Council who voted in favour of the resolution.
The UNSC resolution demands an “immediate ceasefire in war-ravaged Gaza during Ramadan” and calls for the “immediate and unconditional release of all hostages”.[10] Prior to this, the 15-member Security Council had failed in four previous attempts to adopt a resolution on the Gaza crisis.[11]
This was the Council’s first unequivocal call for an immediate ceasefire since Israel began a military offensive in the Gaza Strip. The involvement of Japan and the ROK in this milestone resolution comes at an opportune time when both these countries have been stepping up their role as a more proactive contributor to international peace and security. The cooperation between Japan and the ROK in the UNSC is indeed a greater necessity, especially amidst the widening rift amongst the veto-wielding permanent members, which leads to a constant derailment in the functioning of the UNSC.
Japan and the ROK are traditionally considered to be allies of the United States (US), a permanent member of the UNSC with veto powers. Therefore, the actions of Tokyo and Seoul in the decision making of the UNSC are assumed to be under heavier scrutiny. With the US having abstained from voting into adoption of Resolution 2728 (2024) but withholding their veto power and, on the other hand, Japan and the ROK substantively voting in favour along with the others, it projects how Tokyo and Seoul go on case-by-case basis not toeing the line with their traditional ally Washington’s every decision.
After the passing of Resolution 2728 (2024), Ambassador Yamazaki Kazuyuki, Permanent Representative of Japan to the United Nations, delivered a statement at the UNSC briefing where he urged the concerned parties to immediately act in good faith. He also gave support for the ongoing diplomatic efforts towards cessation of all hostilities and release of the hostages. Ambassador Yamazaki, raising concerns about spill-over effects of the conflict, cautioned against any military offensive into Rafah.
Binding or Not, Obligations under International Law
After adoption of the UNSC Resolution 2728 (2024), there were different interpretations regarding its nature whether it is binding or not. All UNSC resolutions are considered binding, in accordance with Article 25 of the UN Charter which was ratified by the US. However, the US Department of State spokesperson Matthew Miller during a press briefing stated that the US interpretation of the current UNSC resolution on Gaza Ceasefire was non-binding.[12] The sentiments were echoed by the White House National Security spokesperson John Kirby as well as the US Permanent Representative to the UN Ambassador Linda Thomas-Greenfield.[13]
On the other hand, the Chinese top diplomat to the UN, Zhung Jun, told the Council: “If fully and effectively implemented, (the resolution) could still bring long-awaited hope. The Security Council resolutions are binding.”[14] Deputy UN spokesperson Farhan Haq added that “the UNSC resolutions are international laws, so to that extent they are as binding as international laws are”.[15] Pedro Comissario, Mozambique’s UN Ambassador, said “all the United Nations Security Council resolutions are binding and mandatory”. [16]
Apart from the differences in the technicality of the resolution’s binding nature, the adoption of Resolution 2728 (2024) can be considered as a milestone achievement for the UNSC and its current members (permanent and non-permanent). However, there are still uncertainties whether all parties would comply with their obligations under the international law.
As the rotating President of the UNSC, Japan’s Ambassador also underscored how “Israeli settlement activities violate international laws”, and called on Israel to immediately cease all unilateral actions such as “settler violence and forcible displacement of Palestinians”.[17] Ambassador Yamazaki expressed optimism regarding Resolution 2728 as a potential catalyst for peace, security, and stability in the Middle East. He reaffirmed the two-state solution, with Israel and an independent Palestine coexisting peacefully, as the most viable path to lasting peace in the region's long-standing conflict. Japan pledged continued collaboration with other Security Council members towards achieving this goal.[18]
Similarly, the Republic of Korea’s Permanent Representative to the UN, Ambassador Hwang Joonkook, said it was the first ever resolution from the E-10, or the elected 10 non-permanent members of the UNSC, to be adopted on this Middle East agenda and represented a huge breakthrough. However, he also underlined that the resolution will only have concrete significance if it results to a tangible impact in Gaza itself. The ROK’s Ambassador highlighted that the resolution reflected the consensus of the international community, which starts with a ceasefire.[19] In addition, the spokesperson of the Ministry of Foreign Affairs of the ROK, Lim Soo-suk during a regular press briefing stressed on their hopes that the UNSC resolution will lead to a ceasefire agreement, the release of all hostages and a surge in humanitarian aid.[20]
In comparison, the US Ambassador and Permanent Representative Linda Thomas-Greenfield, while abstained from the vote but withheld veto power, insisted that the foundation of the critical objectives of Resolution 2728 (2824) was contained in the earlier resolution that the US had put forward previously but was vetoed by Russia and China. US Ambassador stated that a ceasefire “could have come months ago had Hamas been ready to release the hostages, accusing the group of throwing roadblocks in the path of peace”.[21] The White House National Security spokesperson John Kirby added that “the US abstention from the UNSC resolution on Gaza ceasefire, allowing the resolution to pass, was not a change in American policy”.[22] Meanwhile, Israel’s Prime Minister Benjamin Netanyahu has described the US failure to Veto the Resolution as a “clear retreat” from its previous position.[23]
Japan's Push for UNSC Reform
Since the immediate aftermath of the 7th October 2023, Hamas attack on Israel, there had been four previous attempts by the 15 members of the UNSC for a resolution on the cessation of hostilities or an immediate Ceasefire in Gaza, which all had been vetoed.
Date |
Resolution tabled by |
Vetoed by Permanent member |
22 March 2024 |
United States of America [24] (Permanent member) |
China and Russia[25] |
20 February 2024 |
Algeria[26] (Non-permanent member) |
United States of America[27] |
25 October 2023 |
United States of America[28] (Permanent member) |
China and Russia[29] |
18 October 2023 |
Brazil[30] (Non-permanent member) |
United States of America[31] |
Source: United Nations
The current development is a pertinent reminder of how the UNSC needs a larger pool of permanent representation from the international community through reformed multilateralism. Japan has been placing great importance on its initiatives as a member of the G4 (Japan, India, Germany and Brazil), a group that cooperates on promoting UNSC reform.
As the non-permanent member of the UNSC for the term 2023-24, Japan has managed fairly well to contribute actively to discuss on the response to regional and global issues. Tokyo’s active contribution in maintaining and strengthening international order based on the rule of law while cooperating to enable the UNSC to fulfil its expected role showcases its capabilities as a future permanent member in the advent of the potential UNSC reforms.
The ROK's Opportunity as a “Global Pivotal State”
In the case of the ROK, considering Seoul’s aspirations of becoming a “Global Pivotal State”, their non-permanent membership term for 2024-25 provides an extremely significant opportunity. The ROK has also been vocal about how the current global tensions, along with conflicts among the permanent members and confrontations between blocs, have made it difficult for the Council to speak with “one single voice” on major international issues.[32]
In such a scenario, it was extremely important for the ROK to come together with the other elected non-permanent members to find a breakthrough. The current term for the ROK offers an opportunity to Seoul to address the North Korea issue as well as broaden the scope of its foreign policy agenda to become a “Global Pivotal State contributing to freedom, peace, and prosperity”. With their turn to hold the rotating Presidency of the UNSC in the month of June 2024, the global community will have expectations from the ROK as an aspiring “Global Pivotal State” to ensure that the UNSC effectively table agendas of critical issues. As South Korea began its non-permanent membership in January 2024, the Ministry of Foreign Affairs Republic of Korea stated that “over the next two years, we will play a responsible role to ensure that the UNSC effectively responds to critical issues endangering global peace and security such as the North Korea issue, war in Ukraine and Israeli-Palestinian problem”.[33]
Way forward
The fact that Japan and the ROK have the opportunity to work in cooperation at the UNSC in 2024 gives an added impetus to the recalibration of their bilateral ties. They can jointly address the North Korean issue of nuclear proliferation and the incessantly provocative ballistic missile tests. Their cooperation along with the members of the UNSC who voted in favour of the landmark Gaza ceasefire can be established as a documented case of global diplomacy under extremely difficult circumstances. Furthermore, Japan and the ROK working simultaneously at the UNSC in 2024 will need to provide an effective pathway for the reformation of the UNSC, especially if the two countries aspire to advocate the challenges of the Indo-Pacific and the Global South.
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*Dr Tunchinmang Langel, Research Fellow, Indian Council of World Affairs (ICWA)
Disclaimer: Views expressed are personal
Endnotes
[1] Ministry of Foreign Affairs of Japan, 2023, “Chapter 3 Japan’s Foreign Policy to Promote National and Global Interests”, Diplomatic Bluebook 2023, pp. 196-262, https://www.mofa.go.jp/policy/other/bluebook/2023/pdf/pdfs/3-1.pdf (Accessed 26 March 2024)
[2] United Nations Security Council, 2024, “Security Council Presidency”, https://www.un.org/securitycouncil/content/presidency (Accessed 26 March 2024)
[3] Ministry of Foreign Affairs of Japan, 2024, “Press Conference by Foreign Minister KAMIKAWA Yoko”, March 15, 2024, https://www.mofa.go.jp/press/kaiken/kaikenwe_000001_00045.html (Accessed 26 March 2024)
[4] Park Hye-Ri, 2024, “Nation begins 2-year term as UNSC non-permanent member”, Korea.net, January 02, 2024, https://www.korea.net/NewsFocus/policies/view?articleId=244688 (Accessed 26 March 2024)
[5] United Nations Security Council, 2024, “Security Council Presidency”, https://www.un.org/securitycouncil/content/presidency (Accessed 26 March 2024)
[6] Gabriela Bernal, 2024, “Can South Korea become a global pivotal state?”, The Interpreter, February 28, 2024, https://www.lowyinstitute.org/the-interpreter/can-south-korea-become-global-pivotal-state (Accessed 26 March 2024)
[7] Ken Moriyasu, 2023, “South Korea and Japan must cooperate at U.N. next year, Seoul envoy says”, Nikkei Asia, November 10, 2023, https://asia.nikkei.com/Politics/International-relations/Indo-Pacific/South-Korea-and-Japan-must-cooperate-at-U.N.-next-year-Seoul-envoy-says (Accessed 27 March 2024)
[8] Ministry of Foreign Affairs Republic of Korea, 2023, “ROK Elected as Non-permanent Member of UN Security Council for 2024-25 Term”, June 9, 2023, https://down.mofa.go.kr/eng/brd/m_5674/view.do?seq=320861&page=15 (Accessed 10 April 2024)
[9] Permanent members in favour - Russia, China, France, the United Kingdom. Non-permanent members in favour - Algeria, Ecuador, Guyana, Japan, Malta, Mozambique, South Korea, Sierra Leone, Slovenia and Switzerland
[10] United Nations, 2024, “UN Security Council demands ‘immediate ceasefire’ in Gaza, ending months-long deadlock”, March 25, 2024, https://news.un.org/en/story/2024/03/1147951 (Accessed 26 March 2024)
[11] United Nations, 2024, “UN Security Council demands ‘immediate ceasefire’ in Gaza, ending months-long deadlock”, March 25, 2024, https://news.un.org/en/story/2024/03/1147951 (Accessed 26 March 2024)
[12] The Economic Times, 2024, “'Our interpretation of UNSC resolution on Gaza cease-fire 'non-binding': US State Dept”, March 27, 2024, https://economictimes.indiatimes.com/news/international/world-news/our-interpretation-of-unsc-resolution-on-gaza-cease-fire-non-binding-us-state-dept/videoshow/108823766.cms?from=mdr (Accessed 27 March 2024)
[13] Nadeen Ebrahim and Abbas Al Lawati, 2024, “The US allowed a Gaza ceasefire resolution to pass at the UN. What does that mean for the war?”, CNN, March 27, 2024, https://edition.cnn.com/2024/03/26/middleeast/israel-gaza-ceasefire-un-resolution-war-impact-intl (Accessed 28 March 2024)
[14] Riyaz ul Khaliq, 2024, “UN cease-fire resolution ‘binding’ on Israel: China”, Anadolu Agency, March 26, 2024, https://www.aa.com.tr/en/middle-east/un-cease-fire-resolution-binding-on-israel-china/3175604 (Accessed 27 March 2024)
[15] Al Jazeera, 2024, “Will the UN ceasefire resolution stop Israel’s war on Gaza?”, March 26, 2024, https://www.aljazeera.com/news/2024/3/26/will-the-un-ceasefire-resolution-stop-israels-war-on-gaza (Accessed 28 March 2024)
[16] United Nations, 2024, “Mozambique & Others on Security Council's Adoption of Gaza Ceasefire Resolution”, YouTube-United Nations, March 26, 2024, https://www.youtube.com/watch?v=3pc8Qnkb6Ow&ab_channel=UnitedNations (Accessed 27 March 2024)
[17] Permanent Mission of Japan to the UN, 2024, “Statement by H.E. Ambassador YAMAZAKI Kazuyuki, Permanent Representative of Japan to the United Nations, at the United Nations Security Council Briefing on ‘The Situation in the Middle East, including the Palestinian Question’”, March 26, 2024, https://www.un.emb-japan.go.jp/itpr_en/yamazaki032624.html (Accessed 28 March 2024)
[18] Permanent Mission of Japan to the UN, 2024, “Statement by H.E. Ambassador YAMAZAKI Kazuyuki, Permanent Representative of Japan to the United Nations, at the United Nations Security Council Briefing on ‘The Situation in the Middle East, including the Palestinian Question’”, March 26, 2024, https://www.un.emb-japan.go.jp/itpr_en/yamazaki032624.html (Accessed 28 March 2024)
[19] United Nations, 2024, “Gaza: Security Council passes resolution demanding ‘an immediate ceasefire’ during Ramadan”, March 25, 2024, https://news.un.org/en/story/2024/03/1147931 (Accessed 27 March 2024)
[20] Yi Wonju, 2024, “S. Korea welcomes U.N. resolution demanding ceasefire in Gaza”, Yonhap News Agency, March 26, 2024, https://en.yna.co.kr/view/AEN20240326007400315 (Accessed 28 March 2024)
[21] United Nations, 2024, “Gaza: Security Council passes resolution demanding ‘an immediate ceasefire’ during Ramadan”, March 25, 2024, https://news.un.org/en/story/2024/03/1147931 (Accessed 27 March 2024)
[22] PBS News Hour, 2024, “White House holds news briefing as Israel cancels delegation”, March 25, 2024, https://www.pbs.org/newshour/politics/watch-live-white-house-holds-news-briefing-as-israel-cancels-delegation (Accessed 28 March 2024)
[23] The Hindu, 2024, “Israel's Netanyahu cancels delegation to Washington after UN vote on Gaza”, March 26, 2024, https://www.thehindu.com/news/international/israels-netanyahu-cancels-delegation-to-washington-after-un-vote-on-gaza/article67992313.ece (Accessed 10 April 2024)
[24] United Nations Security Council, 2024, “United States of America: draft resolution”, March 22, 2024, https://documents.un.org/doc/undoc/gen/n24/079/75/pdf/n2407975.pdf?token=cpUuZXR8ouRgjXrLyV&fe=true (Accessed 10 April 2024)
[25] United Nations, 2024, “Russia and China veto US resolution stating imperative of ‘immediate and sustained ceasefire’ in Gaza”, March 22, 2024, https://news.un.org/en/story/2024/03/1147856 (Accessed 10 April 2024)
[26] United Nations Security Council, 2024, “Algeria: draft resolution”, February 20, 2024, https://documents.un.org/doc/undoc/gen/n24/045/82/pdf/n2404582.pdf?token=owFWLxVhJq3LPtvh09&fe=true (Accessed 10 April 2024)
[27] United Nations, 2024, “US vetoes Algerian resolution demanding immediate ceasefire in Gaza”, February 20, 2024, https://news.un.org/en/story/2024/02/1146697 (Accessed 10 April 2024)
[28] United Nations Security Council, 2024, “United States of America: draft resolution”, October 25, 2023, https://documents.un.org/doc/undoc/gen/n23/320/92/pdf/n2332092.pdf?token=frdCW4KLXgL6bUo0Yj&fe=true (Accessed 10 April 2024)
[29] United Nations Dag Hammarskjöld Library, 2024, “UN Security Council Meetings & Outcomes Tables”, https://research.un.org/en/docs/sc/quick (Accessed 10 April 2024)
[30] United Nations Security Council, 2024, “Brazil: draft resolution”, October 18, 2023, https://documents.un.org/doc/undoc/gen/n23/311/26/pdf/n2331126.pdf?token=gkkKQFPMblHf2lKBAj&fe=true (Accessed 10 April 2024)
[31] United Nations Dag Hammarskjöld Library, 2024, “UN Security Council Meetings & Outcomes Tables”, https://research.un.org/en/docs/sc/quick (Accessed 10 April 2024)
[32] Kim Seung-yeon, 2024, “S. Korea vows responsibility as elected UNSC member as 2-year term begins”, Yonhap News Agency, January 01, 2024, https://en.yna.co.kr/view/AEN20231231001400315 (Accessed 28 March 2024)
[33] Park Hye-Ri, 2024, “Nation begins 2-year term as UNSC non-permanent member”, Korea.net, January 02, 2024, https://www.korea.net/NewsFocus/policies/view?articleId=244688 (Accessed 10 April 2024)