Alan Baker: UNSC Resolution 2803 and the ‘Comprehensive Plan to End the Gaza Conflict’
United Nations Security Council Resolution 2803 (2025), adopted on Nov. 17, 2025, represents a serious attempt to restructure governance, security and reconstruction mechanisms in the Gaza Strip.Gazans' Stark Choice: Either Hamas or Reconstruction
Presented alongside, and built upon, President Donald J. Trump’s “Comprehensive Plan to End the Gaza Conflict” of Sept. 29, 2025, the resolution endorses a multilayered framework involving an unprecedented Board of Peace (BoP), an International Stabilization Force (ISF) and a transitional technocratic Palestinian administrative structure.
1. The resolution’s legal character and Chapter VII elements
Although Resolution 2803 does not invoke Chapter VII of the U.N. Charter, its wording adopts components associated with Chapter VII determinations. The operative clause stating that the situation in Gaza “threatens regional peace and security” reflects the terminology of Article 39, signaling that the Security Council perceives a threat to international peace.
However, by refraining from expressly stating that the resolution was adopted under Chapter VII, the council avoids establishing binding enforcement measures. Key operative verbs—such as endorses and calls on—further demonstrate that the resolution’s obligations are largely recommendatory rather than mandatory.
Legally, this carefully calibrated language creates a gray zone:
It strengthens the political authority of the plan.
It provides Security Council endorsement of it.
Yet it withholds the coercive weight of Chapter VII.
This ambiguity allows states to claim U.N. legitimacy for participation, while simultaneously preventing the council and the U.N. from assuming direct responsibility for implementation or oversight.
2. Endorsement of the Comprehensive Plan: Scope and limitations
The council “endorses” the Comprehensive Plan rather than “adopting” it. This distinction is essential. Endorsement acknowledges the plan’s existence and supports its aims, but:
It does not transform the plan into a U.N. instrument.
It does not give the U.N. operational control over implementation.
The Comprehensive Plan is thus validated politically but not incorporated legally into the UN’s institutional architecture. The United States, in some form of loose coordination with Qatar, Egypt and Turkey remains the principal diplomatic driver.
This distinction directly affects:
the legal authority of the Board of Peace
the status and obligations of U.N. agencies operating in Gaza
the status of future political negotiations
The Board of Peace: A novel international governance mechanism
The resolution welcomes the establishment of the Board of Peace, assigning it “international legal personality”—a term commonly associated with international organizations but undefined within the resolution itself.
Questions arise:
Is the BoP envisioned as an independent international organization?
What treaties or instruments grant it legal personality?
What “relevant international legal principles” govern its operations?
The BoP is empowered to oversee:
a transitional civil administration in Gaza
reconstruction and economic initiatives
coordination of humanitarian aid
establishment of operational entities (including bodies with their own international legal personality)
Importantly, the BoP is not a U.N. body, nor does it operate under U.N. authority or financing. Its legitimacy stems solely from the political endorsement of the Security Council and the states participating in its creation.
It will be many years before the great majority of Gaza residents are living in anything more than makeshift or temporary housing. The future of Gaza hinges entirely on the willingness of the world to take an active role in reconstruction. But for that to happen, Hamas has to step out of the way by disarming and ceding any role in governing Gaza.Yom HaPlitim: How one day honors a million displaced Jews
Allowing Hamas to continue as a fighting force means that its war with Israel will resume, and with it will come another round of death and destruction. Understandably, the Gulf governments that are expected to foot the bill for reconstruction costs don't want to see their investment go up in flames.
Allowing Hamas a significant role in governance also risks undermining the reconstruction effort. In its years in power, Hamas never showed any particular interest in the welfare of the Gazans under its rule, leaving basic services like education and health to the care of others; it had even less of an interest in economic development. Hamas would almost certainly use the civilian institutions of reconstruction as a cover to rearm.
Gaza thus faces a stark choice of an armed Hamas preparing for the next round of war with Israel, or reconstruction and a functioning economy. Given how desperate the situation is, you would think the gun option would be a non-starter for Gazans. But it seems that Gazans want to have both, according to a recent poll.
A demilitarized Gaza means, in effect, raising the white flag and acknowledging that the most audacious and sustained act of "armed resistance" in Palestinian history was a failure. Yet however steadfast Palestinians may want to be in the fight with Israel, living in a tent amid rubble, with minimal access to basic services and no means to support a family, is not a long-term option.
Yom HaPlitim, meaning “Day of the Refugees,” is the Israeli national day honoring the 850,000+ Jewish refugees who were expelled from or forced to flee Arab and Muslim majority countries and Iran from the 1940s to the 1970s. In Israeli law, the day is officially called “The Day to Mark the Departure and Expulsion of Jews from the Arab Countries and Iran,” and is sometimes referred to as Yom HaPlitim (“Day of the Refugee”) or Yom HaGirush (“Day of the Expulsion”). The first official Yom HaPlitim was commemorated on Nov. 30, 2014, after the Knesset resolution adopting the day was adopted in June of that year.
Nov. 30 was chosen particularly because the day before marks the anniversary of the UN Partition Plan vote on Nov. 29, 1947, a day that also sparked violence and persecution against Jewish communities in many Arab countries.
Why did Jewish refugees flee Arab countries and Iran?
Before 1948, around 850,000–900,000 Jews lived across the Arab world and Iran, in places like Iraq, Egypt, Yemen and Aden, Libya, Syria, Lebanon, Morocco, Tunisia, Algeria, and Iran. After the partition vote and especially after Israel’s establishment, many of these communities faced anti-Jewish riots and pogroms, mass arrests, and laws stripping Jews of citizenship, jobs, and property. Within a generation, most of these ancient communities had been emptied; today, only a small fraction of the Jews who once lived across the region remain.
Yom HaPlitim was created to acknowledge the trauma, loss, and displacement of Jews in Arab and Muslim countries; preserve the history of ancient Jewish communities, many thousands of years old, which were declining and then destroyed in the mid-20th century; to promote awareness of confiscated and revoked property; and to correct the historical gap in which Jewish refugees from Arab lands received very little recognition and delegitimization of their Middle Eastern identities. By the 1970s, over 95% of Jews from Arab countries had left, many never allowed to return. In some cases, entire communities were moved in dramatic rescue operations, like Operation Magic Carpet (airlifting Yemenite Jews to Israel) and Operation Ezra and Nehemiah (airlifting Iraqi Jews).
Some advocates frame Yom HaPlitim as a way to highlight a “second” refugee population alongside Palestinian refugees. Others caution against using one community’s trauma to negate another’s. At its best, Yom HaPlitim is about adding a missing chapter to the story of the 20th century, not erasing or minimizing anyone else’s suffering.
Today is Jewish Refugees Day. We remember 850,000 Jews forced out of Arab states and Iran in the 20th century. Communities 2,500 years old were destroyed.
— Hillel Neuer (@HillelNeuer) November 30, 2025
At the United Nations, I asked Algeria, Egypt, Iraq, and the others: “Where are your Jews?”
Still waiting for an answer. pic.twitter.com/s6gsyuZvGP



















