Turkel First Rep

The Public Commission
to Examine the Maritime

Incident of 31 May 2010
The Turkel Commission
Report | Part one
The Public Commission
to Examine the Maritime
Incident of 31 May 2010
The Turkel Commission
January 2010
Report | Part one
Mr. Bonjamin Nolanyalu
Tlo Irimo Minislor
Tlo lonorabIo Irimo Minislor,
Re: Repnrt nI the Cnmmissinn Inr Examining the Maritime
Incident nI May 31, 2010 - Part One
Iursuanl lo paragrapl 10 of Govornmonl rosoIulion no. 1796 of
}uno 14, 2010, vo rospoclfuIIy submil lo llo Govornmonl a roporl on llo
foIIoving mallors:
a. Tlo socurily circumslancos in vlicl llo navaI bIockado on llo Gaza
Slrip vas imposod and vlollor llo bIockado compIios vill llo ruIos
of inlornalionaI Iav (paragrapl 4a of llo Govornmonl rosoIulion).
b. Wlollor llo aclions carriod oul by IsraoI lo onforco llo navaI bIockado
on May 31, 2010, compIiod vill llo ruIos of inlornalionaI Iav
(paragrapl 4b of llo Govornmonl rosoIulion).
c. Tlo aclions carriod oul by llo organizors and parlicipanls of llo fIoliIIa
and lloir idonlilios (paragrapl 4c of llo Govornmonl rosoIulion).
In llo noxl slago, llo commission viII submil parl lvo of llo roporl,
vlicl viII addross llo quoslion vlollor llo moclanism for oxamining
and invosligaling compIainls and cIaims of vioIalions of llo Iavs of var,
as carriod oul by IsraoI in gonoraI, and as impIomonlod vill rogard lo
llo ovonls of May 31, 2010, in parlicuIar, compIios vill llo obIigalions of
llo Slalo of IsraoI pursuanl lo llo ruIos of inlornalionaI Iav. Iarl lvo of
llo roporl viII aIso addross ollor quoslions llal aroso from llo maloriaI
boforo llo commission.
Tlo IubIic Commission lo Ixamino llo Marilimo
Incidonl of 31 May 2010
}uslico Imorilus }acob TurkoI
Clairman of llo commission
Major-GonoraI (ros.) Amos Horov
Mombor of llo commission
Ambassador Rouvon Morlav
Irof. MiguoI Doulcl
Iord David TrimbIo
Obsorvor
Brigadior-GonoraI (rol.) Konnoll Walkin
Obsorvor
Cnmmissinn Members
}uslico (Rol.) }acob TurkoI, Clairman
Ambassador Irofossor Slablai Rosonno, (Docoasod 21.9.10)
GonoraI (Rol.) Amos Horov
Irofossor MiguoI Doulcl
Fnreign Observers
Iord David TrimbIo (Unilod Kingdom)
Brigadior GonoraI (Rol.) Konnoll Walkin, Q.C. (Canada)
Cnmmissinn Cnnrdinatnr
Advocalo Hosloa GollIiob
5peciaI CnnsuItants
Irof. Dr. WoIff HoinlscloI von Hoinogg (Gormany)
Irof. MiclaoI Sclmill (Unilod Kingdom` U.S.A.)
LegaI 5taII
Advocalo Clrislino Bjork
Advocalo Haim Wismonsky
Advocalo Moran Yalav
Reasearch Assistants
Ms. Hagil GIuska
Mrs. YaoI Iovy
Mr. ArioI NaflaIy
Mr. Malanya CalIon
Cnmmissinn 5pnkesman
Mr. Ofor IofIor
Administrative 5taII
Mr. Avi Alias
Mr. Kfir HaIfon
Mrs. TaIi Molabor
Mrs. Toni IoigoIman
Mr. Aviad Ioigin
TabIe nI Cnntents
Observers' Letter .....................................................................................................................................11
PreIace tn the Repnrt .....................................................................................................................13
Intrnductinn ........................................................................................................................................................15
The backgrnund tn the estabIishment nI the Cnmmissinn
and the Gnvernment resdutinns...............................................................................................................15
DeIiberatinns nI the Cnmmissinn...........................................................................................................19
The structure nI the repnrt ..............................................................................................................................24
Chapter A: The navaI bInckade
nI the Gaza 5trip ......................................................................................................................................25
GeneraI backgrnund tn the impnsitinn nI the navaI bInckade
nn the Gaza 5trip ......................................................................................................................................................26
Tlo slalus of llo Gaza Slrip in llo yoars 1967-2010 ....................................................26
Tlo lorriloriaI valors of llo Gaza Slrip in llo yoars 1967-2010 .......................32
The Questinns beInre the Cnmmissinn ............................................................................................38
The CnnInrmity nI the NavaI BInckade with InternatinnaI Law ...........................38
Tlo IogaI framovork ..................................................................................................................................38
1|c ccnccpi c| . 'n.t.| o|cc|.!c in gcncr.|.............................................................. 38
1|c |cg.| scurccs ............................................................................................................................... 40
1|c |cg.| !chniiicn c| i|c icrm 'n.t.| o|cc|.!c
.n! i|c ru|cs gctcrning iis impcsiiicn .n! cn|crccmcni ............................... 44
Tlo conicl in llo Gaza Slrip ............................................................................................................45
1|c c|.ssihc.iicn c| i|c ccnici ociuccn |sr.c| .n! i|c H.m.s
.n! i|c imp|ic.iicns c| i|is c|.ssihc.iicn |cr i|c n.t.| o|cc|.!c ............ 45
Is llo Gaza Slrip an occupiod lorrilory` .................................................................................50
IsraoIs imposilion of llo navaI bIockado ..............................................................................53
1|c purpcsc c| i|c n.t.| o|cc|.!c ...................................................................................... 53
A|icrn.iitcs ic i|c n.t.| o|cc|.!c ..................................................................................... 58
IsraoIs CompIianco vill llo IogaI RuIos Govorning
a NavaI BIockado ...........................................................................................................................................61
Ccmmiimcni ic i|c ru|cs c| inicrn.iicn.| |.u ........................................................ 61
'Nciicc c| i|c impcsiiicn .n! !ur.iicn c| . n.t.| o|cc|.!c ........................ 62
Humanilarian obIigalions .....................................................................................................................64
1|c |um.nii.ri.n siiu.iicn in i|c G.z. Sirip........................................................ 69
C|.ims rcg.r!ing i|c |um.nii.ri.n siiu.iicn in i|c G.z. Sirip ............ 72
1|c prc|ioiiicn c| si.rting i|c citi|i.n pcpu|.iicn ............................................ 82
1|c prctisicn c| cojccis csscnii.| |cr i|c surtit.| c| i|c
citi|i.n pcpu|.iicn ......................................................................................................................... 84
P.ss.gc c| mc!ic.| supp|ics ..................................................................................................... 86
1|c mi|ii.r .!t.ni.gc c| i|c n.t.| o|cc|.!c tcrsus |.rm c.usc!
ic i|c citi|i.n pcpu|.iicn ........................................................................................................... 90
'InlornalionaI luman riglls Iav and ils appIicalion in our caso ...............102
CIaims rogarding 'coIIoclivo punislmonl .........................................................................104
Moans of rosoIving dispulos rogarding llo IogaIily
of a navaI bIockado ...................................................................................................................................109
Chapter A: CnncIusinns..................................................................................................................................111
Chapter B: The actinns undertaken by
IsraeI tn enInrce the navaI bInckade
nn May 31, 2010 ..........................................................................................................................113
GeneraI .............................................................................................................................................................................113
The Iacts ..........................................................................................................................................................................116
Tlo proparalion slago ............................................................................................................................116
1|c siiu.iicn oc|crc i|c cpcr.iicn |rcm .n inic||igcncc pcrspcciitc .. 116
Dccisicn c| i|c pc|iiic.| cc|c|cn ........................................................................................ 119
1|c !ip|cm.iic .iicmpis ic prctcni i|c cii||. |rcm !cp.riing ............. 121
1|c |DIs prcp.r.iicns |cr i|c 'Win!s c| Hc.tcn cpcr.iicn ............ 124
Tlo miIilary oporalion for onforcing llo navaI bIockado
on May 31, 2010 - llo impIomonlalion slago ...................................................................138
1|c |nuir .n! W.rning Si.gc ...................................................................................... 138
Giting i|c insiruciicn ic i.|c ctcr i|c s|ips ........................................................ 141
1|c 1.|cctcr c| i|c M.ti M.rm.r. .............................................................................. 142
1|c 1.|cctcr c| i|c Oi|cr Vcssc|s .................................................................................. 180
1rc.imcni c| i|c I|cii||. P.riicip.nis |rcm i|cir Arrit.|
in i|c As|!c! Pcri unii| i|cir Dcpcri.iicn |rcm |sr.c| ............................... 184
1|c Dccc.sc! .n! i|c Wcun!c! ....................................................................................... 190
Pcsi-inci!cni |tcnis .................................................................................................................. 193
The FIntiIIa Participants and Their Activities: AdditinnaI DetaiIs ..................197
Tlo Organizors of llo IIoliIIa .........................................................................................................197
Tlo Iarlicipanls on llo IIoliIIa .....................................................................................................205
Tlo Idonlily and OrganizalionaI AfhIialion of llo Doad
and llo Woundod ......................................................................................................................................216
The Questinns beInre the Cnmmissinn .........................................................................................219
CnnInrmity between the Actinns IsraeI Tnnk tn EnInrce
the BInckade nn May 31, 2010, and InternatinnaI Law ..................................................219
Tlo Iav Govorning llo Inforcomonl of llo BIockado .........................................219
Inforcomonl in InlornalionaI Walors .....................................................................................220
Tlo Capluro of llo IIoliIIa VossoIs ...........................................................................................221
Iav AppIicabIo lo llo Uso of Iorco againsl Iorsons on Board
llo IIoliIIa VossoIs .....................................................................................................................................228
App|ic.iicn c| |nicrn.iicn.| Hum.nii.ri.n I.u cr
Hum.n Rig|is I.u.................................................................................................................... 228
1|c Si.ius c| i|c Citi|i.n P.sscngcrs ......................................................................... 233
Si.ius c| i|c |HH Aciitisis .................................................................................................. 234
Si.ius c| i|c C.pi.in .n! Crcu ........................................................................................ 241
Tlo RuIos of Ingagomonl and llo Uso of Iorco...........................................................242
GonoraI Assossmonl Rogarding llo Uso of Iorco
during llo Inforcomonl of llo BIockado ...................................................247
1|c n.iurc c| i|c i|rc.i pcsc! ic i|c |DI ......................................... 247
1|c N.iurc c| i|c Rcspcnsc o i|c |DI ............................................ 256
AnaIysis nI the Use nI Fnrce by IDF 5nIdiers
during the Takenver Operatinns nn May 31, 2010 .........................................263
Impacl of llo IIanning and Organizalion of llo Oporalion
on llo Uso of Iorco .......................................................................................270
An AHornalivo Iorspoclivo: AnaIysis of llo Oponing Aclions
Undor Iav Inforcmonl Norms ..................................................................275
Chapter B: CnncIusinns .......................................................................................278
CnncIuding Remarks ...........................................................................................280
Annexes ..................................................................................................................281
Turkel Commission Report | 11
The Rt. Hnn. (WiIIiam) David TrimbIe, Lnrd TrimbIe
Brigadier-GeneraI (Ret.) Kenneth Watkin, Q.C.
Il is an lonour for us lo sorvo as Obsorvors lo llo IubIic Commission
appoinlod lo inquiro inlo llo marilimo incidonl of 31 May 2010. Wo
undorslood and accoplod llo sonsilivilios llal Iod lo our appoinlmonl as
obsorvors lo llo Commission and nol, slriclIy spoaking, mombors of il.
NonolloIoss vo aro salisfiod llal vo lad accoss lo aII llo maloriaI boforo
llo Commission and vo voro fuIIy invoIvod by llo Commission in aII ils
vork.
AII loslimonios, boll in opon and privalo sossion and aII formaI
moolings of llo Commission voro, of courso, conduclod in Hobrov.
Hovovor lloy voro simuIlanoousIy lransIalod for us inlo IngIisl. In llo
oarIy days lloro voro somo difficuIlios vill llo lransIalion of documonls
inlo IngIisl, lloso voro quickIy ovorcomo as our vork procoodod.
Wo aro gIad llal llo Commission mado ropoalod offorls lo loar
boll sidos, oxlonding lo making arrangomonl for ovidonco lo bo givon by
vidoo conforoncing and offoring lo lako ovidonco in a noulraI Iocalion. Wo
rogrol llal lloso offors voro nol lakon up. Bul vo vouId Iiko lo oxpross
our approcialion of llo IsraoIi Arabs, vlo voro on llo Mavi Marmara and
vlo gavo ovidonco lo us. Wo vouId aIso Iiko lo llank llo roprosonlalivos
of llo IsraoIi Human Riglls Non-GovornmonlaI Organizalions vlo
loslifiod and providod significanl maloriaI lo llo Commission.
Tlo Commission mado onormous offorls, lo gol as mucl informalion
as possibIo. Tlis invoIvod going back lo llo IDI for addilionaI informalion,
oblaining furllor slaff lo oxamino aII llo vidoo maloriaI (lundrods of
lours) incIuding llo CCTV dovnIoadod from llo Mavi Marmara and lo
coIIalo llo maloriaI so llal il las boon abIo lo oxamino oacl uso of forco
by llo IDI. Wo lavo aIso boon improssod vill llo offorls of llo smaII bul
vory dodicalod loam of Iavyors supporling llo vork of llo Commission.
Wo lavo no doubl llal llo Commission is indopondonl. Tlis parl of
llo roporl is ovidonco of ils rigour.
On a porsonaI nolo vo vanl lo llank aII llo mombors of llo
Commission vlo oacl lavo gono oul of lloir vay lo voIcomo and assisl
us. Il is a pIoasuro lo vork vill llom. SpociaI monlion musl bo mado of
llo clairman, }udgo TurkoI, for lis considoralion of us porsonaIIy and llo
cIarily vill vlicl lo diroclod llo vork of llo commission.
12 | Turkel Commission Report
Wo vouId aIso Iiko lo oxlond our sincoro approcialion lo llo liroIoss
offorls of Commission Coordinalor, Hosloa GollIiob, vlo las boon
inslrumonlaI in onsuring our succossfuI parlicipalion in llis Commission.
Wo vouId aIso Iiko lo pIaco on rocord our onormous rogard for lloso
vlo lavo assislod us as Obsorvors from oulsido of IsraoI incIuding llo slaff
vlo providod llo simuIlanoous lransIalions of aII llo oraI procoodings,
punclualod onIy by romindors lo us lo spoak inlo llo microplonos, llo
lransIalors vlo onsurod voIuminous loxls voro avaiIabIo lo us in IngIisl,
and llo ovor loIpfuI and diIigonl adminislralivo slaff vlo lavo Iookod
aflor our ovory IogislicaI nood.
IinaIIy vo rogrol llal our acquainlanco vill Slablai Rosonno vas
cul slorl by lis doall. Ho improssod us vill lis knovIodgo, oxporionco,
insigll and, abovo aII, vill lis claraclor and courlosy. Ho vas a lruo
gonlIoman.
Lnrd David TrimbIe Kenneth Watkin
Brigadier-GeneraI (Ret.)
PreIace tn the Repnrt
Wlon llo commission vas oslabIislod, vo look upon oursoIvos,
joinlIy and as individuaIs, llo difficuIl and agonizing lask of ascorlaining
llo lrull rogarding llo issuos llal vo voro askod lo addross. Tlo
commission vas givon compIolo indopondonco, and oacl of ils mombors
las a rocord of many yoars of indopondonl and objoclivo sorvico in
various capacilios: a Supromo Courl juslico, ono of llo mosl sonior judgos
in IsraoI, as clairman of llo commission, a profossor, scloIar, dipIomal
and rosoarclor of inlornalionaI ropulalion in llo fioId of inlornalionaI Iav,
vlo sadIy passod avay during llo Commission's vork on Soplombor 21,
2010, a formor prosidonl of llo Toclnion - IsraoI Inslilulo of ToclnoIogy,
a major-gonoraI in llo IDI and llo clairman of llo board of diroclors of
RafaoI, vill ricl oxporionco, incIuding on pubIic commissions of inquiry,
an oxporl in MiddIo-Iasl sludios, a sonior mombor of llo inloIIigonco and
socurily oslabIislmonl, a dipIomal oxporioncod in inlornalionaI roIalions,
an ambassador and formor diroclor-gonoraI of llo Minislry of Ioroign
Affairs, a profossor, loaclor, scloIar, rosoarclor and aullor of ropulo
in llo fioId of civiI Iav. Tvo obsorvors sal vill us, as mombors of llo
commission in ovory rospocl: Iord David TrimbIo from IroIand, a NoboI
poaco prizo vinnor and formorIy llo Iirsl Minislor of llo Norllorn IroIand
AssombIy, and Brigadior-GonoraI (ros.) Konnoll Walkin from Canada,
formorIy llo }udgo Advocalo-GonoraI of llo Canadian Iorcos.
IniliaIIy vo llougll llal llo invosligalion of llo circumslancos in
vlicl llo navaI bIockado vas imposod on llo Gaza Slrip and onforcod
and llo IogaIily of lloso aclions vouId nol roquiro llo considoralion of
difficuIl facluaI and IogaI quoslions. Bul il soon bocamo cIoar lo us llal
llo invosligalion vouId bo Ionglly and compIox, and roquiro a dolaiIod
sludy boll of facl and Iav. Wo lloroforo askod llo Govornmonl lo oxlond
llo povors of llo commission and lo incroaso llo numbor of ils mombors
(from llroo, al llo limo of llo originaI appoinlmonl, lo fivo), in ordor lo
onabIo il lo carry oul ils dulios in an oplimaI mannor. Tlo Govornmonl
agrood lo llis roquosl.
As an oxampIo of llo nood llal aroso for vidor and moro
comprolonsivo invosligalions, il slouId bo said loro llal al quilo an oarIy
slago vo roaIizod llal vo couId nol oxamino llo navaI bIockado villoul
aIso oxamining llo Iand crossings poIicy for llo lransfor of lumanilarian
suppIios lo llo Gaza Slrip and ovon llo lumanilarian silualion in llo Gaza
Slrip in gonoraI. AdmillodIy, llo quoslion of llo Iand crossings poIicy and
llo lumanilarian silualion in llo Gaza Slrip vouId appoar, prim. |.cic,
lo go boyond llo scopo of llo navaI bIockado - vloso purposo vas lo
provonl llo passago of voapons lo llo Gaza Slrip by soa, a roulo llal
las novor boon usod lo convoy lumanilarian suppIios - bul llo mislakon
improssion formod in corlain circIos vill rogard lo llo purposos of llo
bIockado compoIIod us lo considor llis issuo as voII, and lo vidon our
invosligalion far moro llan vo lad originaIIy llougll.
Anollor oxampIo of a quoslion llal roquirod far moro oxlonsivo
and llorougl considoralion vas llo quoslion of llo circumslancos and
IogaIily of llo lakoovor of llo M.ti M.rm.r. and llo ollor fIoliIIa vossoIs
by IDI forcos. In llis rogard vo foIl oursoIvos duly-bound lo oxamino llo
prociso dolaiIs of aII llo acls and oporalions carriod oul by oacl individuaI
mombor of llo armod forcos and llo socurily porsonnoI llal boardod
llo M.ti M.rm.r. and llo ollor fIoliIIa vossoIs, minulo by minulo, and
vo oxaminod llo IogaIily of llo acls vill groal caro from ovory propor
porspoclivo.
In invosligaling lloso and ollor issuos in aII lloir aspocls, vo lavo
boon as prociso as possibIo and dono ovorylling llal fIosl and bIood can
do vlon caIIod upon lo pass judgmonl in sucl a mallor. Wo lavo dovolod
oursoIvos lo our vork and aspirod lo arrivo al llo oxacl lrull, ovon if il
is lard and painfuI. AIong llis roulo, vo lavo lopod llal vo slouId nol
slumbIo or orr oillor in a mallor of facl or of Iav. Wo lopo llal vo lavo
succoodod in aclioving llis.
Horo vo vouId Iiko lo oxpross our graliludo and doop approcialion
lo llo obsorvors vlo sal vill us, Iord TrimbIo and Brigadior-GonoraI
Walkin, for lloir subslanliaI and imporlanl conlribulion lo llo
commissions vork and for llo considorabIo lroubIo llal lloy look, lo
llo oxlornaI consuIlanls of inlornalionaI ropulalion, Irof. Dr. WoIff
HoinlscloI von Hoinogg and Irof. MiclaoI Sclmill, vlo agrood vill
llo IogaI concIusions of llo roporl, roviovod and commonlod on llo
Commissions IogaI anaIysis, and agrood vill llo IogaI concIusions,
for lloir vory vaIuabIo loIp, lo Irof. Rull Iapidoll, rocipionl of llo
IsraoI Irizo for inlornalionaI Iav, for lor advico and vory imporlanl
guidanco. SpociaI llanks aro givon lo llo oxcoIIonl loam of jurisls and llo
adminislralivo slaff vlo assislod us liroIossIy, and ospociaIIy lo Advocalo
Hosloa GollIiob, llo Commission Coordinalor. Willoul lis considorabIo
and imporlanl IogaI and adminislralivo assislanco, llis roporl couId nol
lavo boon pubIislod.
Intrnductinn
The backgrnund tn the estabIishment nI the
Cnmmissinn and the Gnvernment decisinns
1. Sinco llo boginning of 2001, llousands of morlars and rockols of
various kinds lavo boon firod in ovor groving numbors from llo Gaza
Slrip al lovns in llo Soull of IsraoI noar llo Gaza Slrip, various IDI
miIilary basos, llo bordor crossings bolvoon IsraoI and llo Gaza Slrip
(and boforo llo disongagomonl from llo Gaza Slrip, aIso al IsraoIi lovns
in llo Gaza Slrip).
1
Aflor llo Hamas lorrorisl organizalion soizod conlroI
of llo Gaza Slrip in }uno 2007, llo Govornmonl adoplod various moasuros.
Ialor, on }anuary 3, 2009, a navaI bIockado vas aIso imposod on llo Gaza
Slrip.
2
2. IoIIoving informalion rogarding llo organizalion of fIoliIIas
vloso slalod doslinalion vas llo Gaza Slrip (and vlicl lloroforo sougll
lo broacl llo navaI bIockado), llo Slalo of IsraoI look various dipIomalic
and ollor moasuros, boll oponIy and covorlIy, lo provonl llo doparluro
of lloso fIoliIIas by poacofuI moans. SovoraI slips llal lriod lo roacl llo
Gaza Slrip did indood lurn back, ollors voro inlorcoplod by llo IsraoIi
navy villoul llo uso of forco and brougll lo a porl in IsraoI, and llo
lumanilarian suppIios on board voro lransporlod lo llo Gaza Slrip via
llo Iand crossings.
3 In llo days procoding May 31, 2010, a fIoliIIa of six vossoIs
3

advancod lovards llo coaslIino of IsraoI, vill approximaloIy 700 porsons
on board.
4
Tlo Iargosl of llo slips in llo fIoliIIa, llo M.ti M.rm.r., vill
1 Soo "Tlo IubIic Commission lo Ixamino llo Marilimo Incidonl of May 31, 2010" (posilion
papor by llo IDI MiIilary Advocalo GonoraI, }uIy 2010), markod by llo Commission as
oxlibil 10 |loroinaflor MAG pcsiiicn p.pcrj, "llroal of rockols from Gaza Slrip 2000-2007"
(roporl by Tlo InloIIigonco and Torrorism Informalion Conlor, Tlo InloIIigonco Iogacy
Conlor (IICC) clairod by Rouvon IlrIicl, Docombor 2007), lorrorism-info.org.iI/maIam_
muIlimodia/Hobrov/lob_n/pdf/rockol_llroal.pdf.
2 Soo docIaralion by Minislor of Dofonso "RosoIulion of NavaI BIockado" (}an. 3, 2009).
3 Tlis roporl usos llo dofinilions of llo Minislry of Transporlalion (Slipping and Iorls
Aullorily), vlicl dofinos a 'boal' as a vossoI vlicl is nol a slip and ils fuII Iongll is
abovo 7 molors, and a 'slip' as a vossoI vloso capacily (gross) is abovo 100 lons, ils Iongll
is abovo 24 molors and is Iiconsod lo lransporl moro llan 12 passongors oul of llo IsraoIi
coasls. In llis fIoliIIa, lloro voro lvo boals (Boal SIINDONH 8000, CHAIIINGIR) and
four slips (Mavi Marmara, GAZZI, SOIIA, DIINI Y). Soo llo dofinilions claplor of llo
Soamanslip (SaiIors) roguIalions, 5762-2002.
4 Soo Minislry of llo Inlorior dala as submillod lo llo Commission on }an. 9, 2011, found in
foIdor markod by llo Commission as oxlibil 147. According lo llo Immigralion Aullorily
690 foroign cilizons parlicipalod in llo cruiso, aIong vill fivo IsraoIi cilizons and lvo
approximaloIy 29 crov mombors and 561 passongors,
5
conslilulod llo
scono of llo incidonl llal is doscribod boIov. Tlo Slalo of IsraoI aIso
adoplod various moasuros vill rogard lo llis fIoliIIa boforo il doparlod,
bul lloso offorls voro unsuccossfuI. Offors lo aIIov llo suppIios for llo
Gaza Slrip lo onlor via Asldod porl or II-Arisl porl and lloroaflor via llo
Iand crossings voro nol accoplod.
On May 31, 2010, in llo oarIy lours of llo morning, IDI forcos
boardod llo M.ti M.rm.r. and look conlroI of llo vossoI. During llo
boarding and laking conlroI of llo slip, llo IDI forcos oncounlorod
vioIonl rosislanco. Wlon llo confIicl ondod, il vas found llal nino of llo
slips passongors lad boon slol doad, and fifly-fivo passongors and nino
IDI soIdiors voro voundod.
4 On }uno 14, 2010, llo Govornmonl of IsraoI docidod lo oslabIisl an
indopondonl pubIic Commission lo oxamino various aspocls of llo aclions
lakon by llo Slalo of IsraoI lo provonl llo slips from roacling llo Gaza
Slrip coasl on May 31, 2010 (loroaflor: the Gnvernment resnIutinn nI June
14, 2010).
6
Supromo Courl }uslico Imorilus }acob TurkoI vas appoinlod
lo clair llo Commission, and llo Ialo Irofossor Slablai Rosonno and
GonoraI (ros.) Amos Horov voro appoinlod as mombors. Tvo foroign
oxporls voro aIso appoinlod lo acl as obsorvors (loroaflor: the nbservers):
Iord David TrimbIo and Brigadior-GonoraI (rol.) Konnoll Walkin.
Tlo Commission vas askod lo oxamino llo foIIoving issuos:
IaIoslinians.
5 Il slouId bo nolod llal llo dala lransforrod lo llo Commission on llis mallor is nol
unambiguous. Tlis dala vlicl viII sorvo us Ialor on, is basod on llo radio rocording of
llo Marmara caplains ansvor lo llo navys quoslion rogarding llo numbor of passongors
on llo slip, audio fiIo "gc_12_156.550_30_05_2010_22_23_28_19_1.WAV" (minulo 02:00
and onvards) from foIdor 633, in llo Navy foIdor on a dala lard disc, markod by llo
Commission as oxlibil 133, lransforrod lo llo Commission on 16.09.2010 |loroaflor:
N.t !.i. !iscj. Tlis dala corrosponds vill a Iisl by AMAN. Al llo samo limo, various
sourcos al IDI and IsraoIi IoIico lavo lransforrod difforonl dala lo llo Commission on llis
mallor. Tlus for oxampIo, various IDI sourcos oslimalod llal lloro voro a Iargor numbor
of passongors on llo Marmaras dock. Tlo slips Iog, lransforrod lo llo Commission by
IsraoIi IoIico, slipuIalos a difforonl numbor - 601 - incIuding 44 crov mombors and 557
passongors. Tlo Iisl is dolaiIod and aIso incIudos llo nalionaIilios of llo passongors. Al llo
samo limo, il cannol bo knovn vlollor llis Iisl vas acluaIIy updalod or vlollor il is a Iisl
conlaining llo namos of llo passongors vlo signod up for llo cruiso. Tlo Minislry of llo
Inlorior slalod llal al llo ond of llo day 535 passongors disombarkod from llo Marmara
al Asldods porl (sinco somo of llo passongors voundod in llo courso of ovonls voro
ovacualod by air and llo nino kiIIod voro ovacualod by soa).
6 RosoIulion 1796 of llo 32nd Govornmonl "appoinlmonl of a indopondonl pubIic
Commission, clairod by llo supromo courl judgo (rol.), }acob TurkoI, lo oxamino llo
marilimo incidonl of May 31, 2010" (}un. 14, 2010) |loroinaflor Gctcrnmcni Rcsc|uiicn c|
14.6.2010j.
a. An oxaminalion of llo socurily circumslancos for imposing
a navaI bIockado on llo Gaza Slrip and vlollor llo navaI
bIockado compIios vill llo ruIos of inlornalionaI Iav.
b. Wlollor llo acls carriod oul by IsraoI lo onforco llo navaI
bIockado on May 31, 2010, compIiod vill llo ruIos of
inlornalionaI Iav.
c. An oxaminalion of llo acls carriod oul by llo organizors and
parlicipanls of llo fIoliIIa, and lloir idonlilios.
7
Tlo Commission vas aIso askod lo oxamino 'llo quoslion vlollor
llo oxaminalion and invosligalion procoss for compIainls and aIIogalions
raisod vill rogard lo vioIalions of llo Iav of combal, as gonoraIIy
praclicod in IsraoI and as impIomonlod vill rogard lo llo incidonl undor
considoralion, is consislonl vill llo obIigalions of llo Slalo of IsraoI
pursuanl lo llo ruIos of inlornalionaI Iav.
8
Tlo rosoIulion aIso providod llal llo obsorvors vouId parlicipalo
in llo doIiboralions and consuIlalions of llo Commission, bul 'vouId
nol lavo a rigll lo volo vill rogard lo llo Commissions procoodings
and concIusions.
9
Al llo oulsol, il slouId bo nolod llal llo lvo foroign
obsorvors voro fuII parlicipanls in llo Commissions vork, as if lloy voro
acluaI mombors, incIuding llo loaring of llo loslimonios, llo inlornaI
consuIlalions and llo proparalion of llis roporl. Tlo obsorvors gavo of
lloir limo and offorls in ordor lo onsuro llo vork vas of llo liglosl
slandard, vliIo crilicaIIy oxamining llo procoduros llal voro foIIovod
and sooking lo arrivo al llo lrull, and lloy lloroby mado a vory significanl
conlribulion lo llo Commissions vork.
Advocalo Hosloa GollIiob vas appoinlod as llo Commission's
Coordinalor.
5 On }uIy 4, 2010, llo govornmonl docidod lo oxlond llo
Commissions povors and lo givo il corlain povors pursuanl lo llo
Commissions of Inquiry Iav, 5729-1968:
'Tlo Minislor of }uslico slaII dolormino llal llo Commission viII
bo givon povors pursuanl lo soclions 9 lo 11 and 27(b) of llo
Commissions of Inquiry Iav, 5729-1968, subjocl lo llo roslriclions
slalod in paragrapl 6(c) of llo aforosaid Govornmonl rosoIulion
no. 1796 |llo Govornmonl rosoIulion of }uno 14, 2010j.
10
7 Gctcrnmcni Rcsc|uiicn c| 14.6.2010, supr. nolo 6, al arl. 4.
10 RosoIulion 1895 of llo 32nd Govornmonl "granling aullorily lo llo pubIic Commission
for llo oxaminalion of llo marilimo incidonl of May 31, 2010" (}uI. 4, 2010) |loroinaflor
Gctcrnmcni Rcsc|uiicn c| 4..2010j.
On }uIy 5, 2010, llo Minislor of }uslico docidod accordingIy.
11
On }uIy 25, 2010, llo Govornmonl docidod lo oxpand llo
Commissions panoI by adding lvo moro mombors, Ambassador Rouvon
Morlav and Irofossor MiguoI Doulcl.
12
On Soplombor 21, 2010, llo Ialo Irofossor Slablai Rosonno passod
avay. Tlo govornmonl subsoquonlIy rosoIvod on Oclobor 11, 2010, nol
lo appoinl a ropIacomonl. Tlo clairman of llo Commission vas givon a
'casling volo in any caso of a liod volo by llo mombors of llo Commission.
13
6 Al llo limo of vriling llis roporl, lvo consuIlanls llal aro
prominonl oxporls in llo fioId of inlornalionaI Iav advisod llo
Commission, Irofossor Dr. WoIff HoinlscloI von Hoinogg
14
and Irofossor
MiclaoI Sclmill,
15
vlo agrood vill llo IogaI concIusions of llo roporl.
Irofossor Rull Iapidol, vlo rocoivod llo IsraoI Irizo for inlornalionaI
Iav, aIso conlribulod significanlIy lo llo proparalion of llo roporl, and
llo Commission oxlonds ils llanks lo lor.
7 Tlo loam llal assislod in llo Commissions vork incIudod
Clrislino Bjork, Adv. Haim Wismonlsky, Adv. and Moran Yalav, Adv.
Ior llo sako of compIolonoss, il slouId bo monlionod llal aflor llo
Commission vas oslabIislod, a polilion vas fiIod in llo Supromo Courl
11 Soo }uslico Minislors RosoIulion "dolorminalion rogarding llo granling of aullorily lo llo
pubIic Commission for llo oxaminalion of llo marilimo incidonl of May 31, 2010" (}uI. 5,
2010) |loroinaflor jusiicc Minisicr Rcsc|uiicn c| 5..2010j.
12 RosoIulion 2134 by llo 32nd Govornmonl "appoinling addilionaI mombors lo parlicipalo
in llo pubIic Commission clairod by llo supromo courl judgo (rol.), }acob TurkoI, lo
oxamino llo marilimo incidonl of May 31, 2010" (}uI. 25, 2010) |loroinaflor Gctcrnmcni
Rcsc|uiicn c| 25..2010j.
13 RosoIulion 2297 by llo 32nd Govornmonl "llo pubIic Commission lo oxamino llo marilimo
incidonl of May 31, 2010 clairod by judgo (rol.), }acob TurkoI - foIIoving llo doall of Irof.
Slablai Rosonno" (Ocl. 4, 2010) |loroinaflor Gctcrnmcni Rcsc|uiicn c| 4.10.2010j.
14 Irof. Dr. WoIff HoinlscloI von Hoinogg is llo Vico-Irosidonl of llo Iuropa-Univorsill
Viadrina in Irankfurl (Odor), Gormany, vloro lo is Irofossor of IubIic InlornalionaI Iav,
Iuropoan Iav and Comparalivo ConslilulionaI Iav. Ho proviousIy sorvod as doan of
llo Iav facuIly of llo Iuropa-Univorsill and vas llo ClarIos H. Slocklon Irofossor of
InlornalionaI Iav al llo U.S. NavaI War CoIIogo in Novporl, R.I., USA. Ho is a mombor
of llo CounciI of llo InlornalionaI Inslilulo of Humanilarian Iav in San Romo, IlaIy and
vas a mombor of llo group of inlornalionaI Iavyors and navaI oxporls vlo producod llo
San Romo ManuaI.
15 Irof. MiclaoI Sclmill, BA, MA, MA, II.M, }D is Clair of IubIic InlornalionaI Iav al
Durlam Iav SclooI, Unilod Kingdom. Ho vas proviousIy Doan of llo Goorgo C. MarslaII
Iuropoan Conlor for Socurily Sludios in Garmiscl-Iarlonkirclon, Gormany, and ClarIos
H. Slocklon Irofossor of InlornalionaI Iav al llo U.S. NavaI War CoIIogo in Novporl, R.I.,
USA. Ho sorvod for 20 yoars in llo Unilod Slalos Air Iorco, spociaIizing in oporalionaI and
inlornalionaI Iav. Irofossor Sclmill is llo GonoraI Idilor of llo Yoarbook of InlornalionaI
Humanilarian Iav.
againsl llo oslabIislmonl of a pubIic Commission of oxaminalion by
llo govornmonl insload of a pubIic Commission of inquiry.
16
Anollor
polilion vas fiIod on accounl of llo absonco of vomon mombors on llo
Commission.
17
Tlo formor polilion vas amondod aflor llo Govornmonl
rosoIulion of }uIy 4, 2010, rogarding llo oxlonsion of llo Commissions
povors, and il is ponding boforo llo Supromo Courl, vill llo consonl
of llo parlios and pursuanl lo llo courls rocommondalion, unliI llo
Commissions concIusions aro submillod, in viov of llo possibiIily llal
llo issuo raisod in llo polilion may bocomo mool. Tlo Iallor polilion vas
granlod by llo courl, vlicl ordorod llal a voman slouId bo appoinlod
as a mombor of llo Commission, bul il vonl on lo loId llal insofar as llo
appoinlmonl vouId bo offorod by a spocifiod dalo lo fivo vomon vlo
lad nol boon offorod llo posilion in llo pasl and aII of llom rofusod il,
llo Govornmonl vouId lavo disclargod il duly pursuanl lo llo Womons
IquaI Riglls Iav, 5711-1951. Iursuanl lo llo courls docision, offorls
voro mado lo find vomon vlo vouId agroo lo sorvo as mombors of llo
Commission. On Augusl 18, 2010, llo Minislor of }uslico nolifiod llo
Irimo Minislor llal an offor vas mado lo fivo vomon vlo lad nol boon
offorod llo posilion in llo pasl, and aII of llom rofusod il.
18
A nolico lo llis
offocl vas submillod lo llo Supromo Courl.
19
DeIiberatinns nI the Cnmmissinn
8 Il is nol suporfIuous lo omplasizo from llo oulsol llal llo scopo
of llo Commissions vork invoIvos quoslions of boll facl and Iav, and
il foIIovs llal llo oxaminalion of llo facls vas an ossonliaI and main
oIomonl of ils vork. Tlo Commission look slops lo coIIocl llo informalion
in various vays, and aIso loard oraI and vrillon ovidonco. Al oacl slago of
ils vork, llo Commission sougll lo arrivo indopondonlIy and imparliaIIy
al llo lrull, by moans of a carofuI and objoclivo considoralion of llo
ovidonco llal vas brougll boforo il, and vill maximum lransparoncy of
ils procoodings.
9 Hc.ring icsiimcnics. In viov of llo imporlanco llal llo Commission
allaclod lo making as mucl informalion as possibIo avaiIabIo lo llo
pubIic, llo sossions al vlicl loslimonios voro loard voro opon lo llo
16 Soo HC} 4641/10 Uri Atncri t. Primc Minisicr (submillod on }un. 15, 2010).
17 HC} 5660/10 |i.c| - Wcmcn I.ucrs |cr Scci.| jusiicc t. Primc Minisicr (sliII unpubIislod,
Aug. 22, 2010) |loroinaflor HCj 5660/10j.
18 On llis mallor soo Iollor from Minislor of }uslico Yaakov Nooman lo llo Irimo Minislor of
IsraoI lilIod "Supromo Courl ordor in ils funclion as ligl courl of juslico on HCj 5660/10"
(dalod Aug. 22, 2010).
19 Soo slalos nolico rogarding HCj 5660/10 (submillod Aug. 22, 2010).
pubIic, ovon llougl parls of llo loslimonios voro loard in c.mcr. for
roasons of Slalo socurily and IsraoIs foroign roIalions, pursuanl lo
vlal vas slalod in llo Govornmonls rosoIulion of }uno 14, 2010.
20
Tlo
Commission informod llo vilnossos llal aflor loaring llo loslimonios in
c.mcr., il migll docido lo discIoso parls of llom. Il slouId aIso bo nolod
llal llo lranscripls of aII of llo loslimonios llal voro loard pubIicIy voro
upIoadod lo llo Commissions Inlornol silo slorlIy aflor llo loslimonios
voro loard.
21
AII of llo loslimonios voro lransIalod inlo IngIisl by moans
of simuIlanoous lransIalion and llo lranscripls in IngIisl voro aIso
upIoadod lo llo Commissions Inlornol silo.
In lolaI llo Commission loard lvonly-six loslimonios during fifloon
days of loarings, and oIovon loslimonios in c.mcr.. Tlo Iisl of llo vilnossos
llal appoarod boforo llo Commission and llo dalos and cIassifiod slalus
of lloir loslimonios aro sol oul in annox "A".
Il slouId bo nolod llal llo Govornmonl rosoIulion of }uno 14, 2010,
dolorminod (vlicl vas aIso confirmod in llo Govornmonl docision of
}uIy 4, 2010) llal vill rogard lo llo oxaminalion of llo miIilary oporalions
llal voro carriod oul by IsraoI lo onforco llo navaI bIockado on May
31, 2010, llo Commission 'vouId bo abIo lo inspocl llo documonls llal
il roquiros and vouId aIso bo abIo lo ask llo load of llo invosligalion
loam appoinlod by llo Cliof of Slaff lo slov il llo concIusions of llo
oporalionaI invosligalions llal voro carriod oul foIIoving llo incidonl
(i.o., llo finaI roporl of llo miIilary invosligalions llal voro carriod oul
by a commilloo clairod by Major-GonoraI (ros.) Giora IiIand, loroaflor:
llo EiIand Cnmmittee repnrt). Hovovor, il vas dolorminod llal insofar
as aflor rovioving lloso concIusions of llo invosligalion llo Commission
vouId bo of llo opinion llal 'lloro is a nood for moro llorougl and
oxlonsivo invosligalions, il couId ask llo load of llo oxporl invosligalion
loam appoinlod by llo Cliof of Slaff lo ordor llis lo bo dono and lo prosonl
lo llo Commission llo concIusions of llo invosligalions llal vouId bo
carriod oul villin llis conloxl.
In ordor lo ascorlain llo vloIo lrull and in ordor lo oblain
cIosor accoss lo llo acluaI sourcos of llo informalion, llo Commission
oxorcisod llo povor givon lo il in llo aforosaid Govornmonl rosoIulion lo
roquosl moro llorougl and oxlonsivo invosligalions (loroaflor: Further
DebrieIings nI 5eptember 20, 2010). Iursuanl lo llo Commissions
roquosl, il vas lloroforo rosoIvod llal a roprosonlalion of llo Commission
20 Soo Gctcrnmcni Rcsc|uiicn c| 14.6.2010, supr. nolo 6, al arl. 7.
21 Soo 1|c Puo|ic Ccmmissicn ic |x.minc i|c M.riiimc |nci!cni c| M. 31, 2010, .t.i|.o|c .i
vvv.lurkoI-commilloo.gov.iI.
vouId vork vill IDI porsonnoI llal voro appoinlod for llis purposo
and voro nol invoIvod in llo incidonl, vlo vouId carry oul furllor
inquiros for llo Commission, in accordanco vill dolaiIod inslruclions
of llo Commissions roprosonlalion and vill ils assislanco. Willin llo
scopo of lloso inquirios, documonlod loslimonios voro lakon from 38
combal porsonnoI and ollor IDI porsonnoI vlo voro diroclIy invoIvod
in llo ovonls, and oxlonsivo addilionaI maloriaI documonling llo various
aspocls of llo incidonl vas rocoivod (llo vrillon slalomonls llal voro
providod lo llo Commission villin llis conloxl viII bo roforrod lo in
llis roporl as "loslimonios"). IoIIoving llis, addilionaI suppIomonlary
inquiros voro carriod oul, in vlicl lvonly addilionaI combal porsonnoI
and 23 combal and ollor IDI porsonnoI providod addilionaI vrillon
loslimony (loroaflor: IDF 5uppIementary Respnnse tn the Cnmmissinn's
Questinns nI Nnvember 7, 2010, IDF 5uppIementary Respnnse tn the
Cnmmissinn's Questinns nI Nnvember 15, 2010, IDF 5uppIementary
Respnnse tn the Cnmmissinn's Questinns nI Nnvember 29, 2010, IDF
5uppIementary Respnnse tn the Cnmmissinn's Questinns nI December
7, 2010, IDF 5uppIementary Respnnse tn the Cnmmissinn's Questinns
nI December 8, 2010, IDF 5uppIementary Respnnse tn the Cnmmissinn's
Questinns nI December 30, 2010). Tlis maloriaI onabIod llo Commission
lo mako a prociso oxaminalion of llo vloIo procoss of laking conlroI of llo
slip and llo miIilary proparalions llal procodod il. In ordor lo compIolo
llo picluro of llo invosligalion, ovon llo Cliof of Slaff vas summonod lo
loslify onco again on Oclobor 24, 2010 (in addilion lo lis iniliaI loslimony
on Augusl 11, 2010).
In llis rogard il slouId bo nolod llal llo Commission las docidod
lo prolibil llo pubIicalion of llo namos of IDI porsonnoI llal loslifiod
in llo furllor dobriofings and in llo suppIomonlary rosponsos llal voro
conduclod by llo Commission (as monlionod abovo), incIuding llo
pubIicalion of any idonlifying dolaiIs vill rogards lo llom, in accordanco
vill arlicIo 11 in llo govornmonl's docision of }uno, 14, 2010.
22
Tlo Commission aIso sougll lo loar loslimonios from non-officiaIs
and from non-IsraoIis in ordor lo rocoivo as compIolo a picluro as possibIo.
On Soplombor 12, 2010, llo Commission sonl an invilalion lo loslify,
llrougl llo Turkisl Imbassy in IsraoI, lo llo caplain of llo M.ti M.rm.r.,
TuraI Malmul.
23
Iurllormoro, on Soplombor 28, 2010, an invilalion lo
loslify vas sonl lo llo Ioador of llo IHH, BuIonl YiIdirim, vlicl slalod
22 Soo Gctcrnmcni Rcsc|uiicn c| 14.6.2010, supr. nolo 6, al arl. 11.
23 Iollor from Hosloa GollIiob, Commission Coordinalor, lo llo Turkisl Imbassy in IsraoI,
lilIod "Tlo IubIic Commission lo Ixamino llo Marilimo Incidonl of May 31, 2010", no.
2010-96 (dalod Sop. 12, 2010).
llal llo Commission vouId bo proparod lo considor various procoduraI
soIulions in ordor lo faciIilalo llo loslimonios.
24
No rosponso vas rocoivod
lo lloso invilalions.
25
On Oclobor 14, 2010, llo Commission conlaclod llo
Turkisl Imbassy in IsraoI and roquoslod ils loIp in compiIing a Iisl of
vilnossos vlo lad informalion and/or roIovanl documonls and vlo voro
proparod lo loslify boforo llo Commission. Onco again, llo Commission
slalod llal il vouId bo proparod lo assisl in finding approprialo soIulions
rogarding llo mannor of loaring llo loslimonios and in ordor lo faciIilalo
llom. To llo Commissions dismay, llis roquosl aIso did nol rocoivo a
rosponso.
On Oclobor 21, 2010, an invilalion vas issuod lo llo pubIic, in vlicl
any porson vlo lad in lis possossion roIovanl informalion or documonls
on llo mallors villin llo Commissions jurisdiclion vas roquoslod lo
submil il lo llo Commission. Moroovor, on Oclobor 22, 2010, foIIoving a
roquosl of llo Brilisl Imbassy in IsraoI lo llo IsraoIi Minislry of Ioroign
Affairs, Brilisl nalionaIs vlo look parl in llo fIoliIIa and oxprossod lloir
dosiro lo submil ovidonco lo llo Commission voro invilod (llrougl lloir
counsoI) lo submil lo llo Commission a synopsis of llo mallors llal lloy
vislod lo bring boforo il so llal a docision couId bo mado vill rogard lo
llo nood for lloir loslimony. Tlo Commission aIso proposod, aflor making
arrangomonls vill llo Brilisl aullorilios, lo loar lloso loslimonios via
Vidoo-conforonco. Tlo Commissions proposaI romainod unansvorod.
On Oclobor 22, 2010, llo roprosonlalivos of llroo IsraoIi luman riglls
organizalions
26
and lvo IsraoIi nalionaIs vlo parlicipalod in llo fIoliIIa
voro invilod lo loslify, and did so, boforo llo Commission.
27
In lloso circumslancos, llo Commission vas lloroforo compoIIod
lo roIy mainIy on loslimonios and roporls of IsraoIi parlios (aIllougl
il aIso lad boforo il slalomonls llal voro mado by somo of llo fIoliIIa
parlicipanls during llo limo lloy voro in IsraoI, and Commission
addilionaI vrillon and vidoo/plolograplic maloriaI llal il vas abIo lo
oblain). Tlo Commission oxaminod aII of llo loslimonios, sourcos, and
roforoncos crilicaIIy and anaIylicaIIy, vliIo cross-clocking llom againsl
24 Iollor from Hosloa GollIiob, Commission Coordinalor, lo llo Turkisl Imbassy in IsraoI,
lilIod "Tlo IubIic Commission lo Ixamino llo Marilimo Incidonl of May 31, 2010", no.
2010-111 (dalod Sop. 28, 2010).
25 Il slouId bo nolod llal in spilo of llo facl llal llo lvo addrossos voro nol sonl diroclIy lo
llo addrossoos bul lransforrod llrougl llo Turkisl Imbassy in IsraoI, il may bo cauliousIy
assumod llal lloy roaclod llo addrossoos, or al llo vory Ioasl llo addrossoos voro mado
avaro of lloir oxislonco, in Iigll of llo broad pubIicily granlod lo llom by llo Turkisl
modia.
26 Soo IrolocoI of Mooling 12 of llo Commission (Ocl. 13, 2010).
27 Soo IrolocoI of Mooling 14 of llo Commission (Ocl. 25, 2010).
oacl ollor and againsl addilionaI sourcos of informalion, insofar as lloy
voro dirocl and aullonlic sourcos as slalod in paragrapl 10 boIov.
10 Asscmo|ing in|crm.iicn. In addilion lo llo loslimonios llal il loard,
llo Commission rocoivod as aforosaid many documonls for ils inspoclion,
vlicl voro incIudod in moro llan 150 fiIos of oxlibils. A Iisl of aII
documonls llal voro submillod lo llo Commission can bo found on llo
Commission's vobsilo.
28
Tlo Commission aIso rocoivod various synopsos on issuos roIaling
lo ils vork (somo of vlicl voro proparod al llo Commissions roquosl),
lranscripls of Govornmonl moolings, Cabinol moolings and innor
Cabinol moolings, summarios of vork moolings of various parlios in
llo IsraoIi Govornmonl, llo IDI and ollor roIovanl aullorilios, inlornaI
invosligalions llal voro carriod oul in llo IDI (incIuding llo invosligalions
carriod oul by llo Navy, llo load of IsraoI MiIilary InloIIigonco and llo
load of llo Oporalions Division, and a summary of llo invosligalion of
llo load of llo Oporalions Brancl) and addilionaI bodios. Aparl from
aII of lloso, llo Commission rocoivod, inicr .|i., documonlary maloriaI
llal diroclIy documonlod llo ovonls llal occurrod on llo fIoliIIa vossoIs,
and llo mannor in vlicl llo fIoliIIa parlicipanls voro lroalod aflor IDI
sorvicomon look conlroI of llo vossoIs, vlicl lavo a vory ligl IovoI of
crodibiIily. Tlus, for oxampIo, llo Commission rocoivod llousands of
vidoo and audio cIips conlaining lundrods of lours of audio and vidoo
rocordings, vlicl voro assombIod from various sourcos. IDI aullorilios
submillod lo llo Commission maloriaI from a varioly of sourcos, incIuding
vidoo rocordings from llo socurily camoras on llo M.ti M.rm.r., llo
rosuIls of rocordings mado by various vidoo dovicos, vidoo rocordings
llal voro mado by camoras inslaIIod in llo loImols of llo IDI combal
porsonnoI vlo oporalod on llo M.ti M.rm.r., rocordings of radio roporls
during llo incidonl and plolograpls and vidoo rocordings llal voro
mado by parlicipanls in llo fIoliIIa vlon lloy voro on board llo M.ti
M.rm.r., by porsonnoI from llo IDI spokosporsons unil, olc. Tlo IsraoIi
IoIico submillod 46 CDs of inlorrogalions llal il conduclod foIIoving llo
incidonl, and llo Commission aIso rocoivod documonlalion from modia
sourcos in IsraoI and abroad. Moroovor, llo Commission rocoivod objocls
and documonls llal voro soizod on llo M.ti M.rm.r., maloriaI llal
vas soizod from compulors on llo M.ti M.rm.r., modicaI documonls
and modicaI corlificalos (incIuding documonls llal voro rocoivod from
Magon David Adom, documonls llal voro rocoivod from llo Abu Kabir
Ioronsic Inslilulo, documonls llal voro rocoivod from lospilaIs vloro
llo injurod voro lospilaIizod and lroalod), olc. AII of lloso voro roviovod
and oxaminod llorouglIy by llo Commission and voro boforo il vlon
proparing llis roporl.
28 1|c Puo|ic Ccmmissicn ic |x.minc i|c M.riiimc |nci!cni c| M. 31, 2010, .t.i|.o|c .i vvv.
lurkoI-commilloo.gov.iI.
The structure nI the repnrt
11 Tlo Commission docidod lo divido ils roporl inlo lvo parls. Tlo
firsl parl, vlicl is boing submillod nov, addrossos llroo issuos:
a. Tlo firsl issuo concorns llo IogaIily of llo navaI bIockado llal
vas imposod on llo Gaza Slrip, pursuanl lo llo ruIos of inlornalionaI Iav
(paragrapl 4(a) of llo Govornmonl rosoIulion of }uno 14, 2010). Willin
llo framovork of llis oxaminalion, llo Commission oxaminod llo facluaI
basis for imposing llo bIockado, incIuding llo condilions for mainlaining
il, llo roslriclions on llo Iand crossings inlo llo Gaza Slrip and llo
roIalionslip bolvoon llom and llo navaI bIockado, llo lumanilarian
silualion in llo Gaza Slrip and llo quoslion vlollor llo bIockado is
affocling llis silualion. AIongsido aII of lloso issuos, il oxaminod llo ruIos
of inlornalionaI Iav llal appIy in sucl silualions and llo mannor in vlicl
lloy aro impIomonlod, in gonoraI and in llo incidonl undor discussion.
b. Tlo socond issuo concorns llo aclions carriod oul by llo IDI in
ordor lo onforco llo navaI bIockado (paragrapl 4(b) of llo Govornmonl
rosoIulion of }uno 14, 2010). Horo, llo main focus is a spocific and prociso
oxaminalion of aII llo aclions llal voro lakon in ordor lo slop llo fIoliIIa
and idonlifying llo ruIos of inlornalionaI Iav llal appIy lo aclivily of llis
kind, and llo appIicalion lloroof in llo caso boforo us.
c. Tlo llird issuo, vlicl is roIalod lo llo socond issuo, concorns
llo aclions of llo organizors and parlicipanls of llo fIoliIIa and lloir
idonlilios (paragrapl 4(c) of llo Govornmonl rosoIulion of }uno 14, 2010).
29
12 In llo socond parl of llo roporl, vlicl viII bo submillod al a
Ialor poinl in limo, vo slaII addross llo quoslion llal vas prosonlod
in paragrapl 5 of llo Govornmonl rosoIulion of }uno 14, 2010, namoIy
vlollor llo moclanism for oxamining and invosligalion compIainls and
cIaims raisod in roIalion lo vioIalions of llo Iavs of armod confIicl llal is
praclicod in IsraoI in gonoraI, and as appIiod vill rogard lo llo curronl
incidonl, is consislonl vill llo dulios of llo Slalo of IsraoI pursuanl lo
llo ruIos of inlornalionaI Iav. Moroovor, in llo socond parl of llo roporl
vo slaII considor addilionaI quoslions llal aroso in llo courso of llo
Commissions vork, incIuding quoslions llal lavo imporlanco from a
domoslic IsraoIi porspoclivo.
29 By naluro, lloso llroo issuos aro inlorlvinod and il is corlainIy possibIo llal llrougloul
llis roporl, spocific issuos viII como up in moro llan ono pIaco. Tlo Commission las
proforrod, for llo sako of convonionco, and in spilo of llo ropolilivonoss of llis, lo rolurn
and discuss lloso issuos vloro lloy aro roIovanl.
Chapter A:
The navaI bInckade nI the Gaza 5trip
13 In llis claplor vo slaII survoy llo socurily silualion llal Iod lo
llo imposilion of llo navaI bIockado on llo Gaza Slrip, and vo slaII aIso
oxamino vlollor llo navaI bIockado llal vas imposod on llo Gaza Slrip
is consislonl vill llo ruIos of inlornalionaI Iav. Tlo IogaI anaIysis in llis
claplor slaII bo dividod inlo sovoraI parls. In llo firsl parl of llis claplor
vo slaII prosonl, in briof, llo compIox facluaI background concorning
llo IogaI slalus of llo Gaza Slrip, llo slalus of Gazas lorriloriaI valors
llrougloul llo poriod sinco llo capluro of llo Gaza Slrip in 1967, and llo
circumslancos in vlicl llo navaI bIockado of llo Gaza Slrip vas imposod
on }anuary 3, 2009.
Tlo socond parl of llis claplor addrossos llo quoslion of vlal
a 'navaI bIockado is from a concopluaI and IogaI viovpoinl, and llo
sourco of llo IogaI ruIos roguIaling llis mollod of varfaro, incIuding llo
ruIos of cuslomary inlornalionaI lumanilarian Iav and llo inlornalionaI
consonsus rogarding llo ruIos llal govorn a navaI bIockado.
Tlo llird parl addrossos llo cIassificalion of llo confIicl in llo
Gaza Slrip: is llo armod confIicl bolvoon IsraoI and llo Gaza Slrip an
inlornalionaI or non-inlornalionaI ono, and is llo Gaza Slrip a lorrilory
llal is occupiod by IsraoI` Tlo fourll and fifll parls oxamino lov and
vly llo navaI bIockado vas imposod on llo Gaza Slrip, llo aIlornalivos
lo imposing llo navaI bIockado llal voro considorod by IsraoI, llo
roIalionslip bolvoon llo navaI bIockado and llo roslriclions imposod by
IsraoI on Soplombor 19, 2007, vill rogard lo llo lransfor of goods by Iand,
and vlollor llo moasuros adoplod by IsraoI aro consislonl vill llo ruIos
of inlornalionaI lumanilarian Iav llal govorn llo imposilion of a navaI
bIockado.
Tlo noxl llroo parls addross llo lumanilarian aspocls of llo navaI
bIockado on llo Gaza Slrip. Horo vo slaII oxamino sovoraI conlrovorsiaI
issuos vill rogard lo llo quoslion of imposing llo navaI bIockado and
IsraoIs Iand crossings poIicy. Wo viII aIso assos llo appIicabiIily of
luman riglls Iav lo llo caso al land and llo cIaim llal llo navaI bIockado
imposod on llo Gaza Slrip by IsraoI is a form of coIIoclivo punislmonl
diroclod by IsraoI al llo popuIalion of llo Gaza.
In llo finaI parl of llis claplor, vo slaII considor llo moasuros llal
individuaIs or groups aro pormillod lo uliIizo vlon lloy objocl lo llo
IogaIily of a navaI bIockado.
GeneraI backgrnund tn the impnsitinn nI the
navaI bInckade nn the Gaza 5trip
The status nI the Gaza 5trip in the years 1967-2010
14 In }uno 1967, during llo losliIilios in llo Six Day War, llo Gaza
Slrip vas caplurod by IDI forcos (in addilion lo ollor aroas, incIuding Iasl
}orusaIom, llo Wosl Bank, llo GoIan Hoiglls, llo Sinai IoninsuIa). SlorlIy
lloroaflor, a miIilary adminislralion vas oslabIislod in llo 'lorrilory (i.o.,
llo Wosl Bank and llo Gaza Slrip), vlicl oporalod pursuanl lo llo Iavs
of boIIigoronl occupalion in inlornalionaI Iav.
30
Tlis IogaI porspoclivo
rogarding llo Iavs appIicabIo in llo lorrilory vas adoplod by llo Supromo
Courl sinco llal limo.
31
Il slouId aIso bo monlionod llal, foIIoving llo Six
Day War, IsraoIi sollIomonl aIso bogan in llo Gaza Slrip.
32
15 During llo 1990s, poIilicaI nogolialions voro loId bolvoon
llo IaIoslinian Iiboralion Organizalion (loroaflor: the PLO), as llo
roprosonlalivo of llo IaIoslinian poopIo, and llo Slalo of IsraoI, in vlicl
conloxl a docIaralion of principIos vas signod bolvoon llo parlios in
Soplombor 1993 vill rogard lo inlorim arrangomonls for IaIoslinian soIf-
govornmonl.
33
On May 4, 1994, llo Agroomonl on llo Gaza Slrip and
}oriclo Aroa (llo Cairo Agroomonl) vas signod.
34
IoIIoving llis, llo IDI
30 In facl, lvo soparalo miIilary govornmonls voro oslabIislod: ono in llo Wosl Bank and
llo socond in llo Gaza Slrip. Soo HC} 1661/05 Hc| Azz. Rcgicn.| Municip.|ii t. |sr.c|
Kncssci, 49(2) 481, al para. 3 (2005) |loroinaflor mallor of Hc| Azz.j. Il slouId bo monlionod
llal as parl of lloso ruIos, IsraoI aIso appIiod llo fourll Gonova Convonlion RoIalivo lo
llo Iroloclion of CiviIian Iorsons in Timo of War from 1949 and llo roIovanl guidoIinos
from llo roguIalions appondod lo llo fourll Haguo Convonlion, Rospocling llo RuIos
and Cusloms of War on Iand, of 1907 (lo vlicl IsraoI is nol a parly, bul vlicl aIroady al
llo limo of llo Gaza Slrips occupalion vas considorod lo rofIocl cuslomary inlornalionaI
Iav, soo HC} 606/78 Aicut t. Dc|cnsc Minisicr, 33(2), 113, 120 (1979), MAG pcsiiicn p.pcr,
supr. nolo 1, al 3). In llis conloxl il slouId bo monlionod llal IsraoI las rojoclod llo formaI
appIicalion of llo fourll Gonova Convonlion rogarding llo Wosl Bank and llo Gaza Slrip.
As lo llo Gaza Slrip, llis posilion vas basod on various cIaims, cliof among llom llal llo
slrip vas nol parl of Igypls sovoroign lorrilory prior lo ils occupalion by IsraoI (soo MAG
pcsiiicn p.pcr, supr. nolo 1, al 3, Moir Slamgar, Icg.| Ccnccpis .n! Prco|cms c| i|c |sr.c|i
Mi|ii.r Gctcrnmcni - 1|c |niii.| Si.gc, in !"#"$%&' )*+,&-.,-$ "- $/, 0,&&"$*&",1
23."-"1$,&,3 4' 51&%,# 1967-1980: 0/, 6,7%# 218,9$1 13, 15-16 (M. Slamgar od.,
1982), mallor of Hc| Azz., |!., al para. 4.
31 Hc| Azz. caso, |!.
32 In 2003, llo numbor of sollIors in llo Gaza Slrip vas oslimalod al 8,000 poopIo, Soo Hc|
Azz. caso, |!., al para. 12 and roforoncos lloro.
33 DocIaralion of principIos rogarding inlorim agroomonls of soIf govornanco vill IIO
(signod in 1994) |loroinaflor Os|c A Acccr!sj, .t.i|.o|c .i vvv.knossol.gov.iI/procoss/
docs/osIo.llm
34 Agroomonl rogarding Gaza Slrip and }oriclo rogion (signod in 1994) |loroinaflor C.irc
forcos villdrov from mosl of llo lorrilory of llo Gaza Slrip, oxcopl for
llo IsraoIi sollIomonls, llo main accoss roulos lo lloso sollIomonls and
llo aroa of llo miIilary inslaIIalions aIong llo soullorn bordor of llo
Gaza Slrip. Moroovor, mosl of llo adminislralivo rosponsibiIily vas
lransforrod lo llo aulonomous IaIoslinian onlily llal vas oslabIislod,
llo IaIoslinian Aullorily (loroaflor: the PaIestinian Authnrity). Tlo
Cairo Agroomonl aIso incorporalod llo Iaris IrolocoI llal vas signod a
slorl limo oarIior (on ApriI 29, 1994), vlicl roguIalod oconomic roIalions
bolvoon IsraoI and llo aulonomous IaIoslinian onlily.
35
On Soplombor
28, 1995, llo parlios signod an inlorim agroomonl, vlicl incorporalod llo
provious agroomonls signod bolvoon llo parlios (loroaflor: the Interim
Agreement).
36
16 In Oclobor 2000, vioIonl incidonls broko oul in llo Wosl Bank
and llo Gaza Slrip, vlicl voro givon llo namo 'llo Socond Inlifada
by llo IsraoIi pubIic (llo IaIoslinians caII lloso incidonls 'llo AI-Aqsa
Inlifada, llo officiaI lilIo givon lo lloso incidonls by llo IsraoIi socurily
oslabIislmonl vas llo 'Ibb and Tido Ivonls). In lloso, suicido allacks
voro roslarlod in cilios in IsraoIi lorrilory, and from llo boginning of 2001
and lloroaflor on an ovor incroasing scaIo, morlar and rockol allacks of
various kinds voro usod lo allack IsraoI, llo IsraoIi sollIomonls in llo
Gaza Slrip, IDI basos in llo Gaza Slrip and llo bordor crossings. IsraoI
vas no Iongor abIo lo ompIoy llo moasuros llal il lad usod in llo pasl
(sucl as adminislralivo dolonlions) bocauso of llo lransfor of conlroI of
significanl parls of llo Wosl Bank and llo Gaza Slrip, and il rospondod
in various vays, incIuding proIongod Iargo-scaIo miIilary oporalions.
Againsl llis background, IsraoI docIarod llal an armod confIicl vas
laking pIaco bolvoon il and llo IaIoslinian lorrorisl organizalions, and
llal llo normalivo framovork lo bo appIiod lo llo aclivily of llo IDI vas
Agrccmcnij, .t.i|.o|c .i vvv.knossol.gov.iI/procoss/docs/cairo_agroomonl.llm
35 Iaris prolocoI signod in ApriI 1994 and incIudod as appondix lo C.irc Agrccmcni, supr.
nolo 34, al 31.
36 IsraoIi-IaIoslinian Inlorim Agroomonl rogarding llo Wosl Bank and llo Gaza Slrip
(signod in 1995) |loroinaflor 1|c |nicrim Agrccmcnij, .t.i|.o|c .i vvv.knossol.gov.iI/
procoss/docs/loskomb1.llm, llo IogaI slalus of llo inlorim agroomonls, parlicuIarIy in
aII llal roIalos lo llo Gaza Slrip, conslilulos a compIox judiciaI issuo. As a ruIo, ovon in
llo curronl limo and in spilo of IsraoIs villdravaI from Gaza (vlicl mado many cIausos
of llo inlorim agroomonl rodundanl) and llo Hamass riso lo povor (llal is, llo riso lo
povor of a parly vlicl doos nol rocognizo llo inlorim agroomonls), IsraoI conlinuos lo
appIy llo inslruclions of llo agroomonls lo llo oxlonl possibIo. Ior a roviov of llo oxisling
agroomonls and llo quoslions llal arisos rogarding lloir slalus soo: Rull Iapidol, |sr.c|
.n! i|c P.|csiini.ns. Scmc Icg.| |ssucs (Tlo }orusaIom Inslilulo for IsraoI Sludios, 2003).
llo principIos and ruIos of llo Iavs of var. Tlis posilion vas adoplod by
llo Supromo Courl in sovoraI judgmonls.
37
17 In Docombor 2003, llo Irimo Minislor al llal limo, Mr. ArioI
Slaron, announcod a pIan for llo disongagomonl of llo Slalo of IsraoI
from llo Gaza Slrip and from llo aroa of Norll Samaria.
38
On Soplombor
12, 2005, llo Iasl of llo IDI forcos Iofl llo lorrilory of llo Gaza Slrip, and
llo IDI Commandor in llo Gaza Slrip signod a docIaralion lorminaling
llo miIilary adminislralion llal lad oporalod in llo lorrilory.
39
On
Soplombor 20, 2005, llo Minislor of Inlorior dosignalod fivo crossings and
Iand lorminaIs bolvoon IsraoI and llo Gaza Slrip as 'bordor slalions, in
accordanco vill llo povor givon lo lim pursuanl lo soclion 7 of llo Inlry
inlo IsraoI Iav, 5712-1952.
40
In Novombor 2005, IsraoI and llo IaIoslinian
Aullorily signod a Movomonl and Accoss Agroomonl, in vlicl IsraoI
look upon ilsoIf various commilmonls vill rogard lo llo oxporl of goods
from llo Gaza Slrip and llo movomonl of porsons, and vlicl arrangod
for llo oporalion of llo Rafal and Korom SlaIom bordor crossings,
llrougl vlicl llo movomonl of porsons and goods vas supposod lo
bo faciIilalod al llo Igyplian bordor undor llo suporvision of a llird
parly.
41
In Docombor 2005, llo MinisloriaI NalionaI Socurily Commilloo
aullorizod llo Minislor of Dofonso lo docido upon llo oponing or cIosing
of llo bordor lorminaIs.
42

A map of llo Gaza Slrip and llo Iand crossings bolvoon il and IsraoI
is allaclod lo llis roporl as annox "B".
18 In llo gonoraI oIoclions for llo IaIoslinian IogisIalivo CounciI llal
look pIaco in }anuary 2006, llo Hamas
43
organizalion von a majorily. Tlo
Hamas organizalion caIIs for llo oslabIislmonl of an IsIamic Iav slalo in
37 Soo, for oxampIo HC} 9252/00 || S|. t. Si.ic c| |sr.c| (unpubIislod, May 23, 2001), HC}
9293/01 Br.c|. t. Dc|cnsc Minisicr, 56(2) 509 (2002), HC} 3114/02 Br.c|. t. Dc|cnsc Minisicr,
56(3) 11 (2002), HC} 3451/02 A|m.!ni t. Dc|cnsc Minisicr, 56(3) 30 (2002), HC} 4219/02
Gcssin t. Ccmm.n!cr c| |DI Icrccs in G.z. Sirip, 56(4) 608 (2002), HC} 7015/02 Ajuri t.
Ccmm.n!cr c| |DI Icrccs in Wcsi B.n|, 56(6) 352 (2002), HC} 8990/02 P|sici.ns |cr Hum.n
Rig|is t. Scui|crn Ccmm.n! Gcncr.|, 57(4) 193 (2003), HC} 4764/04 P|sici.ns |cr Hum.n
Rig|is t. Ccmm.n!cr c| |DI Icrccs in G.z. Sirip, 58(5) 385 (2004), HC} 769/02 Puo|ic
Ccmmiiicc Ag.insi 1criurc t. Gctcrnmcni c| |sr.c|, (unpubIislod, Doc. 14, 2006) |loroinaflor
1.rgcic! Ki||ing casoj.
38 IoIIoving llo docIaralion llo pIan vas brougll lo llo Knossols approvaI, Soo Iav
impIomonling Disongagomonl IIan, 5765-2005, IB 1982.
39 M.ni|csi Rcg.r!ing 1crmin.iicn c| Mi|ii.r Ru|c (manifosl no. 6) (Gaza Rogion) 5765-2005.
40 Soo Ordor Rogarding Inlranco lo IsraoI (bordor crossings) (amondmonl), 5765-2005.
41 Agroomonl rogarding movomonl and accoss (signod in 2005) |loroinaflor Mctcmcni .n!
Acccss Agrccmcnij.
42 RosoIulion B/43 of llo minislors Commission on mallors of nalionaI socurily (2005).
43 IniliaIs of Harakal aI-Muqavamal aI-IsIamiyyal, llal is, IsIamic Rosislanco Movomonl.
llo vloIo of llo lorrilory of Mandalory IaIoslino, doos nol rocognizo llo
oxislonco of llo Slalo of IsraoI and rojocls roacling finaI agroomonls vill
il. Tloroforo, IsraoI caIIod upon Hamas lo accopl llo llroo basic condilions
dolorminod by IsraoI in llo Govornmonl rosoIulion of Iobruary 19, 2006,
44

vlicl voro approvod in llo rosoIulion of llo Quarlol on llo MiddIo Iasl
(an inlornalionaI body comprisod of llo Unilod Slalos, Russia, llo Unilod
Nalions and llo Iuropoan Union, vlicl vas oslabIislod in 2002 al
Madrid in ordor lo ovorsoo llo rosoIulion of llo IsraoIi-IaIoslinian dispulo,
loroaflor: 'the Quartet'): (1) rocognilion of llo Slalo of IsraoI and ropoaI
of Hamass clarlor, (2) abandoning lorrorism and dismanlIing lorrorisl
infraslrucluro, (3) rocognilion of llo agroomonls and undorslandings llal
IsraoI roaclod vill llo IaIoslinians.
45
Hamas rofusod lo do so. In Marcl
2006, a IaIoslinian govornmonl (vloso lorriloriaI aullorily incIudos
boll llo Wosl Bank and llo Gaza Slrip) loadod by Hamas vas svorn
in.
46
Tlo IsraoIi Govornmonls rosoIulion of ApriI 11, 2006, dolorminod
llo gonoraI poIicy of IsraoI lovards llo IaIoslinian Aullorily foIIoving
llo oslabIislmonl of llo Hamas Govornmonl. In llis conloxl, rogarding
llo Gaza Slrip, il vas rosoIvod llal 'subjocl lo socurily considoralions,
llo crossings from IsraoI inlo llo Gaza Slrip viII romain opon in ordor lo
aIIov llo onlry of lumanilarian aid inlo llo Gaza Slrip.
47
On }uno 25, 2006, lvo IDI soIdiors voro kiIIod, four voro injurod and
CorporaI GiIad SlaIil vas lakon caplivo aflor a coII llal lad ponolralod
inlo IsraoI by moans of a lunnoI llal vas dug undor llo bordor vill llo
Gaza Slrip carriod oul an allack againsl an IDI lank. CorporaI SlaIil is
curronlIy sliII boing loId in caplivily by llo Hamas.
48
During llis poriod, llo firing of rockols and morlars from llo Gaza
Slrip al llo lovns of Soullorn IsraoI conlinuod, as did allacks on llo
44 Soo RosoIulion 4705 of 30ll Govornmonl "Tlo IaIoslinian Syslom IoIIoving IIoclions
in IaIoslinian Aullorily - IsraoIs IoIicy in viov of llo Svoaring in of llo IaIoslinian
IogisIalivo CounciI" (Iob. 19, 2006) |loroinaflor Gctcrnmcni Rcsc|uiicn c| 19.2.2006j.
45 jcini Si.icmcni o Qu.rici |ng.gc! in I.ci|ii.iicn c| Mi!c.si Pc.cc Prcccss (}uI. 16, 2002).
46 Soo RosoIulion 4780 of 30ll Govornmonl ""IsraoIs IoIicy lovards llo IaIoslinian
Aullorily upon IslabIislmonl of Hamas Govornmonl" (Apr. 11, 2006) |loroinaflor
Gctcrnmcni Rcsc|uiicn c| 11.4.2006j, Tlo rosoIulion slipuIalod, among ollor llings, llal
llo IaIoslinian Aullorily is a lorrorisl onlily losliIo lo IsraoI and llal llo Slalo of IsraoI
viII nol lavo lios vill il. Soo aIso govornmonl rosoIulion of Iob. 19, 2006. Tlis rosoIulion
dolorminod, among ollor llings, llal "in Iigll of llo incroasing socurily llroal, llo socurily
oxaminalions al bordor crossings viII incroaso, parlicuIarIy al Karni and Iroz, in rogards
lo poopIo and vorkors as voII as morclandiso. Iikoviso lloro viII bo a conlinualion of
llo oporalion lo upgrado llo crossing in llo Gaza Slrip, in ordor lo mako moro officionl
socurily suporvision possibIo."
47 |!.
48 Ior a dolaiIod anaIysis, soo MAG Iosilion papor, supr. nolo 1, al 8.
Iand crossings inlo llo Gaza Slrip. Tlo IDI rospondod lo lloso allacks
by using arliIIory and aoriaI allacks, and aIso vill oporalions, somo of
vlicl voro oxlonsivo, in llo lorrilory of llo Gaza Slrip. ConsoquonlIy, llo
aclivily al llo crossings vas roslriclod (somolimos lo llo poinl of cIosing
llom onliroIy) and llo IsraoIi socurily aullorilios voro lloroforo roquirod
lo dolormino priorilios for goods onloring llo Gaza Slrip, vliIo giving
proforonco lo food producls and basic producls. In gonoraI, llo onlry of
rav maloriaIs for buiIding, induslry and agricuIluro vas aIso pormillod,
bul llo amounl of goods oxporlod from llo Gaza Slrip vas roslriclod.
Tlis poIicy vas approvod by llo Supromo Courl.
49
Aflor a Iong poriod of lonsion bolvoon llo Hamas and llo Ialal,
vlicl Iod, inicr .|i., lo vioIonl incidonls bolvoon llo oporalivos of llo lvo
movomonls and llo oslabIislmonl of a unily govornmonl loadod by IsmaiI
Haniyol in Marcl 2007, llo Hamas vioIonlIy soizod conlroI of llo Gaza
Slrip in }uno 2007.
50
Aflor llo Hamas soizod conlroI of Gaza, llo rockol
and morlar allacks on IsraoIi lovns incroasod dramalicaIIy. On Soplombor
19, 2007, llo MinisloriaI NalionaI Socurily Commilloo docIarod Gaza a
'losliIo lorrilory and inslruclod llo socurily oslabIislmonl lo imposo
'addilionaI roslriclions in llo civiIian sploro, incIuding vill rogard lo
llo passago of goods, llo suppIy of oiI and oIoclricily and llo movomonl
of porsons lo and from llo Gaza Slrip.
51
IoIIoving llis rosoIulion, vlicl
oxprossIy slalos llal il viII bo impIomonlod onIy aflor a IogaI oxaminalion
and vill llo inlonlion of provonling llo croalion of a lumanilarian crisis
in llo Gaza Slrip, lrado vill llo Gaza Slrip vas prolibilod, roslriclions
voro imposod on llo passago of goods bolvoon IsraoI and llo Gaza Slrip
and llo suppIy of fuoIs lo Gaza vas roducod.
52
Il slouId bo nolod llal
llrougloul llo vloIo poriod, offorls voro mado lo conlinuo coordinalion
49 HC} 5841/06 1|c Asscci.iicn |cr Citi| Rig|is t. Dc|cnsc Minisicr (unpubIislod, Mar. 13,
2007).
50 In rosponso lo llis lakoovor, llo Clairman of llo IaIoslinian Aullorily, Malmoud Abbas
(Abu Mazon), announcod llo disassombIy of llo IaIoslinian Unily Govornmonl on }un.
15, 2007, llo firing of llo Hamas appoinlod Irimo Minislor IsmaiI Haniyol, and a gonoraI
slalo of omorgoncy. In addilion, Abbas appoinlod SaIam Iayyad, llo Iinanco minislor
in llo Unily Govornmonl, as llo Irimo Minislor of llo IaIoslinian Govornmonl, and
oulIavod Hamas miIilary ving.
51 RosoIulion B/34 of llo minislors commission on mallors of nalionaI socurily "IsraoIs
poIicy rogarding Gaza (MiIilary and CiviIian)" (Sop. 19, 2007) |loroinaflor Minisicrs
Ccmmissicn cn N.iicn.| Sccurii Rcsc|uiicn c| 19.9.200j.
52 Soo "CiviIian IoIicy rogarding Gaza Slrip - Iarl A" (summalion by Govornmonl Aclivily
Coordinalor in llo Torrilorios (COGAT), Aug. 31, 2010) markod by llo Commission as
oxlibil 51 |loroinaflor Citi|i.n Pc|ic Rcg.r!ing G.z. Sirip - P.ri Aj, Ior a dolaiIod roviov
of IsraoIs bordor crossing poIicy foIIoving llo rosoIulion of llo minislors commission on
mallors of nalionaI socurily of Sop. 19, 2007, soo paras. 67, 68, 73.
bolvoon llo Slalo of IsraoI and llo IaIoslinian Aullorily (as dislincl from
llo Hamas Govornmonl), ovon vill rogard lo llo Gaza Slrip.
53
19 Will llo assislanco of Igyplian modialion, a coasofiro vas roaclod
in }uno 2008 for a poriod of six monlls. Tlis vas caIIod a 'IuII (Arabic:
i.|!i.). Tlis IuII coIIapsod in Docombor 2008, vlon llo rockol and morlar
allacks againsl IsraoI rocommoncod. On Docombor 27, 2008, IsraoI bogan a
Iargo-scaIo miIilary oporalion in llo Gaza Slrip, llo 'Casl Ioad oporalion,
vlicl Iaslod lvonly-lvo days and al llo ond of vlicl IsraoI villdrov ils
forcos from llo Gaza Slrip and uniIaloraIIy docIarod a coasofiro.
54
Aflor llo oporalion Casl Ioad, on Iobruary 18, 2009, llo MinisloriaI
NalionaI Socurily Commilloo docidod llal, inicr .|i., IsraoI slouId
conlinuo llo lumanilarian offorl, in coordinalion vill llo IaIoslinian
Aullorily and llo roIovanl inlornalionaI organizalions, in ordor lo
provido llo immodialo and basic noods of llo IaIoslinian popuIalion,
and lo llis ond il slouId aIIov llo aclivily of llo crossings, on a parliaI
basis, from ils lorrilory inlo llo Gaza Slrip.
55
NonolloIoss, in an affidavil
signod by llo Cabinol socrolary llal vas submillod on Marcl 31, 2009,
in llo Slalos ropIy lo HC} 2650/09 Miir.c| Ii!. t. Minisicr c| Agricu|iurc
(unpubIislod, ApriI 1, 2009), il said llal llis docision vas nol inlondod lo
clango IsraoIs fundamonlaI poIicy lovards llo Gaza Slrip and lo romovo
llo civiIian roslriclions imposod on il in llo rosoIulion of Soplombor 19,
2007, bul moroIy lo 'incroaso llo Iisl of food producls vloso onlry inlo
llo Gaza Slrip vouId bo pormillod and lo givo an approprialo rosponso
lo llo noods of llo IaIoslinian popuIalion nol invoIvod in lorrorism.
56

IoIIoving llis docision, llo varioly of producls pormillod lo onlor llo
Gaza Slrip vas indood incroasod.
57
On }uno 29, 2010, llo Govornmonl announcod a clango of llis
poIicy and significanlIy roducod llo roslriclions on llo passago of goods.
58

53 Soo oxpansion in paras. 66, 73.
54 RosoIulion B/84 of minislors Commission on mallors of nalionaI socurily "DocIaralion on
coaso firo concorning Oporalion 'Casl Ioad" (}an. 17, 2009).
55 RosoIulion B/90 of minislors Commission on mallors of nalionaI socurily "Conlacl vill
Igypl foIIoving Oporalion 'Casl Ioad, IoIicy Rogarding Rosponso lo Conlinuod Torrorisl
Aclivily from Gaza, Abduclod SoIdior GiIad SlaIil" (Iob. 18, 2009).
56 Soo llo Slalo rosponso lo HC} 2650/09 Miir.c| I1D. t. Minisicr c| Agricu|iurc (sliII
unpubIislod, Aug. 22, 2010).
57 Soo "CiviIian IoIicy Rogarding Gaza Slrip - Iarl B" (summalion by Govornmonl Aclivily
Coordinalor in llo Torrilorios (COGAT), Aug. 31, 2010), al 56, markod by llo Commission
as oxlibil 51 |loroinaflor Citi|i.n Pc|ic Rcg.r!ing G.z. Sirip - P.ri Bj.
58 Soo RosoIulion B/44 of minislors Commission on mallors of nalionaI socurily "appIicalion
of bordor crossing poIicy in roIalion lo Gaza Slrip" (}un. 20, 2010, in llo rosoIulion llo Irimo
Minislor, Dofonso Minislor, and Ioroign Minislor voro aullorizod lo mako rosoIulions - in
accordanco vill llo opinion of llo minislors Commission on mallors of nalionaI socurily
Il vas aIso docidod llal sovoraI aIIovialing moasuros vouId bo carriod
oul villoul doIay, incIuding pubIisling a Iisl of iloms llal vouId nol bo
aIIovod inlo llo Gaza Slrip, vlicl vouId 'incIudo onIy voapons, miIilary
oquipmonl and probIomalic duaI-purposo iloms.
59
Any ilom llal did nol
appoar on llo aforosaid Iisl vouId bo aIIovod inlo Gaza. On Docombor
8, 2010, llo MinisloriaI NalionaI Socurily Commilloo furllor announcod
llal subjocl lo corlain roslriclions, a graduaI pIan for aIIoving goods lo
Ioavo llo Gaza Slrip for pIacos oulsido of IsraoI and llo Wosl Bank vouId
bo approvod.
60
The territnriaI waters nI the Gaza 5trip in the years
1967-2010
20 Irior lo llo impIomonlalion of llo disongagomonl pIan and as
Iong as llo Slalo of IsraoI oxorcisod offoclivo conlroI ovor llo Gaza Slrip,
llo IDI oporalod vill rogard lo llo lorriloriaI valors off llo Gaza Slrip
vill aII of llo povors givon lo llo parly in conlroI of a corlain lorrilory
vill rospocl lo llo lorriloriaI valors adjoining llal lorrilory, incIuding
conlroI of llo passago of navaI lransporlalion for socurily roasons. In 1968,
llo IDI Commandor in llo Gaza Slrip dolorminod llal llo Gaza Slrip
vas a cIosod aroa, and pormission vas roquirod lo onlor il and doparl
from il in any vay, incIuding by soa.
61
Il slouId bo nolod llal during llo
vloIo of llo aforosaid poriod, Gaza did nol lavo a porl llal couId sorvico
inlornalionaI marilimo lransporl, bul onIy an anclorago for fisling boals.
21 Tlo poIilicaI agroomonls vill llo IaIoslinians, as discussod,
rolainod llis aullorily vill llo IDI. Tloso agroomonls providod, inicr
.|i., llal llo Slalo of IsraoI vouId lavo fuII conlroI and soIo socurily
aullorily in llo lorriloriaI valors adjoining llo Gaza Slrip
62
and llal slips
of llo IsraoI Navy vouId bo pormillod lo saiI in llis aroa, as noodod and
- rogarding slops and spocific aclions lo onforcod a bordor crossing poIicy in roIalion lo llo
Gaza Slrip, On }un. 20, 2010 llo Irimo Minislors offico announcod undorlaking a sorios of
slops in ordor lo "provonl llo onlranco of voaponry and combal-supporlivo maloriaIs inlo
Gaza, and al llo samo limo oxpand llo mannor of civiIian morclandisos onlranco inlo llo
Slrip." Soo slalomonl by Irimo Minislors offico rogarding IsraoIs poIicy lovards llo Gaza
Slrip foIIoving llo socurily cabinol mooling (}un. 20, 2010).
59 |!., al para. 1.
60 RosoIulion B/64 of llo minislors Commission on mallors of nalionaI socurily (Doc. 8,
2010).
61 An ordor rogarding llo cIosing of llo rogion (Gaza Slrip and Norll Sinai) (no. 144), 5728-
1968, as amondod in ordor no. 191 and ordor no. 847.
62 Tlo socurily arrangomonls rogarding llo Gaza Slrips navaI spaco voro iniliaIIy
dolorminod in llo C.irc Agrccmcni, supr. nolo 34, Aflorvards lloy voro absorbod inlo llo
|nicrim Agrccmcni, supr. nolo 36, in arlicIo XIV of appondix I.
villoul roslriclion, and lako aII of llo nocossary slops againsl slipping
vossoIs suspoclod of lorrorisl aclivily or iIIogaI aclivily, incIuding againsl
slips suspoclod of smuggIing voapons, drugs, olc.
63
Tlo agroomonls aIso
providod llal llo issuo of inlornalionaI marilimo lransporl lo and from llo
Gaza Slrip viII bo sollIod in finaI arrangomonl nogolialions bolvoon llo
parlios (nogolialions llal lavo nol ondod). Tlo agroomonl aIso providod
llal unliI a suilabIo porl is oslabIislod in llo Gaza Slrip, foroign slips viII
nol bo aIIovod inlo an aroa oxlonding lo a dislanco of 12 naulicaI miIos
from llo coasl, and llal llo onlry of passongors and goods via llo soa
vouId bo possibIo onIy llrougl IsraoIi porls, pursuanl lo llo ruIos and
roguIalions appIying lo llis mallor in IsraoI.
64
Il slouId bo nolod llal aflor
llo Inlorim Agroomonl vas signod, nogolialions voro bogun bolvoon
IsraoI and llo IaIoslinian Aullorily vill rogard lo llo conslruclion of a
porl in Gaza and sovoraI slops voro ovon lakon lovards llis goaI, bul llo
projocl vas sloppod vlon llo Socond Inlifada broko oul in llo yoar 2000.
65

As slalod abovo, llo quoslion of llo slalus and appIicalion of llo Inlorim
Agroomonl loday is compIox and conlrovorsiaI. Moroovor, llo MiIilary
Advocalo-GonoraIs Offico poinlod oul lo llo Commission llo a difficuIly
in roIying on llo Inlorim Agroomonl lo provonl llo onlry of slips saiIing
undor a foroign fIag inlo llo lorriloriaI valors of llo Gaza Slrip, sinco lloy
aro nol a parly lo or bound by llo agroomonl.
66
22 Ovor llo yoars, sovoraI slipping vossoIs lavo lriod lo roacl llo
Gaza Slrip by soa. In llo Iasl docado, lloso allompls lavo bocomo moro
froquonl, and voapons lavo boon found on board somo of llo slips llal
voro soizod on lloir vay lo llo Gaza Slrip. Tlus, for oxampIo, in May
2001 llo S.nicrini Iofl Iobanon for llo Gaza Slrip. Tlis slip vas soizod
by llo IsraoIi navy and brougll lo IsraoI. Many voapons voro found
on llo slip, incIuding anli-lank RIGs (Rockol IropoIIod Gronados),
KaIaslnikov rifIos, olc. In May 2003, llo Aou H.ss.n vas soizod on ils
vay from Iobanon lo llo Gaza Slrip. A Kalyusla fuso and voapons voro
found on llo slip, as voII as a HozboIIal oporalivo. On }anuary 3, 2002,
llo K.rinc A, vlicl sol saiI from Iran, vas soizod vill approximaloIy fifly
lons of voapons on board, incIuding rockols, morlars, anli-lank missiIos,
minos, assauIl rifIos, olc., vlicl voro inlondod for llo Gaza Slrip.
23 Wlon llo disongagomonl pIan vas impIomonlod and llo miIilary
adminislralion in llo Gaza Slrip ondod, llo IDI vas of llo opinion llal,
in consoquonco, il no Iongor lad llo povors llal il rocoivod pursuanl
63 |!.
64 |!.
65 Soo MAG pcsiiicn p.pcr, supr. nolo 1.
66 |!.
lo llo Iavs of occupalion undor inlornalionaI Iav and IsraoIi socurily
IogisIalion. In viov of llo armod confIicl vill llo Hamas Govornmonl
in llo Gaza Slrip, llo MiIilary Advocalo-GonoraI oxaminod llo aclions of
llo IDI in llo lorriloriaI valors of llo Gaza Slrip pursuanl lo llo Iavs of
navaI varfaro.
67
24 In }uIy 2008, various fIoliIIas vloso slalod doslinalion vas llo
Gaza Slrip voro organizod. In viov of llo facl llal llo slips concornod
voro noulraI, llo IDI lad roIalivoIy Iimilod oplions, vlicl mainIy
incIudod llo povor of visil and soarcl, a povor llal can bo usod, inicr .|i.,
on condilion llal lloro aro roasonabIo grounds for suspocling llal a slip
is subjocl lo capluro.
68
Tlo IDI oxprossod llo concorn llal bocauso of llo
nood for llis condilion lo bo salisfiod, llo moasuros avaiIabIo lo llo IDI
voro insufficionl lo provonl allompls lo smuggIo voapons inlo llo Gaza
Slrip.
69
25 On Augusl 13, 2008, llo Slipping Aullorily al llo Minislry of
Transporl pubIislod a Nolico lo Marinors (loroaflor: NOTMAR),
70
caIIing
upon slipping lo rofrain from onloring llo lorriloriaI valors off llo Gaza
Coasl and slaling llal il vouId bo possibIo lo lransporl lumanilarian
suppIios lo Gaza by moans of llo Iand crossing, by arrangomonl vill llo
IsraoIi aullorilios:
'Tlo IsraoI Navy is oporaling in llo marilimo zono off llo coasl
of llo Gaza Slrip. In Iigll of llo socurily silualion, aII foroign
vossoIs aro advisod lo romain cIoar of aroa A in llo allaclod map
|.j
DoIivory of lumanilarian suppIios lo llo civiIian popuIalion in
llo Gaza Slrip is pormillod llrougl llo Iand crossings bolvoon
IsraoI and llo Gaza Slrip, subjocl lo prior coordinalion vill llo
IsraoIi Aullorilios.
71
67 |!., al 35.
68 Ior oxpansion on llis mallor soo para. 54 boIov.
69 Soo MAG pcsiiicn p.pcr, supr. nolo 1, al 39.
70 Advisory Nolico (Marilimo Zono off Tlo Coasl of Gaza Slrip), no. 6/2008 (Aug. 11, 2008),
.t.i|.o|c .i on.mol.gov.iI/indox.plpòplion=com_conlonl&viov=arlicIo&id=74:no62008
&calid=17:nolicolomarinors&Ilomid=12, Soo aIso prolocoI of mooling 3 of llo Commission
"Dofonso Minislors opon door loslimony" 17 (Aug. 10, 2010) |loroinaflor Dc|cnsc Minisicrs
Opcn Dccr 1csiimcnj, prolocoI of mooling 4 of llo Commission "Cliof of Slaffs opon door
loslimony" 13 (Aug. 11, 2010) |loroinaflor C|ic| c| Si.||s Opcn Dccr 1csiimcn c| 11.8.2010j.
Tloso loslimonios aro accossibIo lo llo pubIic al llo Commissions vobsilo, .t.i|.o|c .i
lllp://vvv.lurkoI-commilloo.gov.iI.
71 Tlo map allaclod lo llo nolico lo marinors, as voII as a Iisl of oxacl coordinalos, aro
allaclod as appondix C of llis roporl. In para. 3 of llo nolico lo marinors il is monlionod
llal llo onlry of foroign vossoIs inlo llo marilimo zono adjaconl lo llo Gaza Slrip is aIso
prolibilod according lo llo agroomonls bolvoon IsraoI and llo IaIoslinian Aullorily.
Tlo MiIilary Advocalo-GonoraI oxprossod lis opinion boforo llo
Commission llal llis conslilulod a docIaralion llal llo marilimo zono
noar llo coasl of llo Gaza Slrip vas a 'combal zono or an 'oxcIusion
zono, bul lo said llal lloro vas a dispulo on llo quoslion of vlal aro llo
povors givon lo a Slalo llal docIaros sucl a marilimo zono.
72
Dospilo llo aforosaid NOTMAR, on Augusl 20, 2008, lvo yaclls sol
saiI from Iarnaca in Cyprus in llo diroclion of llo Gaza Slrip, vill forly
passongors on board (llo yaclls Iiocri and Ircc G.z.). Irior lo llis fIoliIIa,
vlicl llo IDI gavo llo namo of 'Winds of Hoavon 1, llo Navy dolorminod
an oporalionaI pIan and dofinod oporalionaI possibiIilios, vlicl incIuding
lransmilling dipIomalic mossagos, and aIso considorod llo possibiIily of
slopping slips boforo lloy sol saiI or slopping llom villoul llo uso of
forco during llo voyago. Moroovor, il considorod llo possibiIily of laking
conlroI of slips or, aIlornalivoIy, of aIIoving slips lo roacl llo Gaza Slrip.
Iursuanl lo a docision of llo poIilicaI ocloIon (llo Irimo Minislor and llo
Minislor of Dofonso),
73
llo yaclls voro pormillod lo onlor llo Gaza Slrip.
Iour addilionaI yaclls llal Iofl Iarnaca porl on soparalo occasions during
llo monlls of Augusl-Docombor 2008 voro aIso pormillod lo onlor Gaza.
In lloir loslimonios boforo llo Commission, various parlios said llal llo
roasons for aIIoving llo yaclls lo pass incIudod, inicr .|i., llo difficuIly
in carrying oul soarclos on lloso boals, llo llougll llal aIIoving llom lo
pass vouId provonl ropoalod occurroncos of llo plonomonon and laking
inlo accounl llal lloso voro roIalivoIy smaII yaclls llal according lo
inloIIigonco did nol prosonl a roaI dangor of carrying voapons.
74
Anollor
slip (llo A| M.ru.), carrying a Iibyan fIag, vlicl lriod lo roacl llo Gaza
Slrip on Novombor 29, 2008, lurnod back aflor mossagos voro lransmillod
lo il llal il vas on courso for an aroa vloro socurily aclivily of llo IsraoIi
Navy vas laking pIaco.
75
On Docombor 29, 2008, anollor yacll (llo Dignii)
Iofl Iarnaca porl vill 25 passongors on board ('Winds of Hoavon 2). Tlo
Navy ordorod llo slip lo lurn back and nol lo onlor llo aroa adjoining
llo Gaza Slrip bocauso of llo miIilary oporalions in llo aroa. During llo
incidonl, llo yacll lil llo bov of a Navy vossoI and vas damagod, bul il
mado ils vay villoul assislanco lo llo porl of Boirul in Iobanon.
76
Tlo
IDI onco again oxprossod llo concorn llal in viov of llo dispulo on llo
quoslion of llo IogaI ramificalions of docIaring an aroa a 'combal zono or
72 Soo MAG pcsiiicn p.pcr, supr. nolo 1, al 38-39.
73 Soo Dc|cnsc Minisicrs Opcn Dccr 1csiimcn, supr. nolo 70, al 20-21.
74 |!., al 19-21, C|ic| c| Si.||s Opcn Dccr 1csiimcn c| 11.8.2010, supr. nolo 70, al 11.
75 C|ic| c| Si.||s Opcn Dccr 1csiimcn c| 11.8.2010, supr. nolo 70, al 11.
76 |!., al 12, Dc|cnsc Minisicrs Opcn Dccr 1csiimcn, supr. nolo 70, al 12-21.
an 'oxcIusion zono, llo NOTMAR did nol provido a compIolo soIulion lo
llo difficuIlios llal aroso vlon llo IDI doaIl vill llo various fIoliIIas.
77
26 In lloso circumslancos, on }anuary 3, 2009, during llo oporalion
Casl Ioad, llo Minislor of Dofonso ordorod a navaI bIockado off llo
coaslIino of llo Gaza Slrip up lo a dislanco of 20 naulicaI miIos from llo
coasl. Tlo significanco of imposing a navaI bIockado according lo llo
ruIos of inlornalionaI Iav is llal il aIIovs a parly lo an armod confIicl
lo provonl onlry inlo llo prolibilod aroa of any vossoI llal allompls lo
broacl llo bIockado (ovon villoul il boing oslabIislod llal llo vossoI is
assisling lorrorisl aclivily). ConsoquonlIy, a NOTMAR vas pubIislod in
llo foIIoving lorms:
'AII marinors aro advisod llal as of 03 }anuary 2009, 1700 UTC,
Gaza marilimo aroa is cIosod lo aII marilimo lraffic and is undor
bIockado imposod by IsraoIi Navy unliI furllor nolico.
Marilimo Gaza aroa is oncIosod by llo foIIoving coordinalos
|.j.
78
Tlo nolico vas pubIislod on llo IDI vob silo, on llo vob silo of llo
Slipping Aullorily and llo Minislry of Transporl, and on sovoraI slandard
inlornalionaI clannoIs, sucl as NAVTIX, an inlornalionaI saloIIilo nolvork
llal coIIocls and dislribulos nolicos lo vossoIs vorIdvido.
79
Moroovor, llis
nolico vas broadcasl lvico a day on llo omorgoncy clannoI for marilimo
communicalions lo slips llal saiIod al a dislanco of up lo 300 km from llo
IsraoIi coasl.
80
Tlo Minislor of Dofonso loslifiod boforo llo Commission
llal in any caso of an allompl lo lransporl lumanilarian suppIios by
soa, llo vossoIs vouId bo diroclod lo Asldod porl and llo lumanilarian
suppIios on board vouId, aflor inspoclion, bo sonl lo llo Gaza Slrip via
llo Iand crossings.
81
77 Soo MAG pcsiiicn p.pcr, supr. nolo 1, al 39, Soo aIso Iollor from Brigadior GonoraI Aviclai
MandoIbIil, llo MiIilary Advocalo GonoraI, lo Major GonoraI IIi Marom, Commandor of
llo Navy (Doc. 29, 2008), Iollor from Brigadior GonoraI Aviclai MandoIbIil, llo MiIilary
Advocalo GonoraI, lo Iioulonanl GonoraI Gabi Aslkonazi, IDI Cliof of Slaff (Doc. 30,
2009), "Tlo IubIic Commission lo Ixamino llo Marilimo Incidonl of May 31, 2010"
(posilion papor by llo IDI MiIilary Advocalo GonoraI - Appondix, }uIy 2010), markod
by llo Commission as oxlibil no. 13 |loroinaflor MAG pcsiiicn p.pcr - Appcn!ixj. In lloso
Iollors, llo MiIilary Advocalo GonoraI undorIinod llo nood lo docIaro a navaI bIockado
llal vouId provido llo navy vill llo propor looIs and aullorilios lo doaI vill llo
plonomonon of civiIian vossoIs visling lo roacl llo Gaza Slrip.
78 Advisory Nolico (BIockado of Gaza Slrip), no. 1/2009 (}an. 3, 2009), .t.i|.o|c .i
199.203.58.11/IN/indox.plpòplion=com_conlonl&viov=arlicIo&id=124:no12009&cali
d=17:nolicolomarinors&Ilomid=12.
79 Soo |DI Ansucr ic Ccmmissicns Ccmp|ciicn Rcucsi c| 15.11.2010, markod as oxlibil 145 of
llo Commissions oxlibils.
80 Soo Dc|cnsc Minisicrs Opcn Dccr 1csiimcn, supr. nolo 70, al 23.
81 |!., al 24.
A map of llo lorriloriaI valors of llo Gaza Slrip, incIuding llo
bIockadod aroa is allaclod lo llis roporl as annox "D".
In }anuary 2009, during oporalion Casl Ioad, lvo slips, llo gonoraI
cargo slip |r.n S|.|c! and llo Spirii c| Hum.nii, docidod nol lo broacl
llo navaI bIockado as lloy lad inlondod aflor navaI forcos sonl llom
varnings nol lo onlor llo aroa ('Winds of Hoavon 3 and 'Winds of Hoavon
4, rospoclivoIy).
27 Aflor oporalion Casl Ioad ondod, llo rosoIulion rogarding llo
imposilion of a navaI bIockado romainod in forco. In lis loslimony boforo
llo Commission, llo Irimo Minislor Mr. Bonjamin Nolanyalu confirmod
llal llo rosoIulion lo imposo llo navaI bIockado vas nol rooxaminod aflor
llo oporalion ondod.
82
In Iobruary 2009, llo gonoraI cargo slip 1.|i, vlicl Iofl llo porl of
TripoIi in Iobanon, lriod lo roacl llo Gaza Slrip ('Winds of Hoavon 5) vill
voapons on board. In }uno 2009, llo vossoI Aricn lriod lo roacl llo Gaza
Slrip vill 30 passongors on board ('Winds of Hoavon 6). Il aIso carriod
lumanilarian oquipmonl (modicalions, infanl formuIa, a fov loys, somo
oIivo lroo sapIings, olc.) and bags of comonl. Tlo lvo slips voro soizod
by llo Navy, villoul llo uso of forco, aflor lloy faiIod lo lood varnings
sonl lo llom. Tlo slips voro brougll lo Asldod porl, procoodings voro
bogun lo oxpoI llo passongors from IsraoI and llo lumanilarian suppIios
on board voro sonl lo llo Gaza Slrip llrougl llo Unilod Nalions aflor a
socurily inspoclion.
83
82 Soo prolocoI of mooling 2 of llo Commission "Irimo Minislors opon door loslimony" 17-
18 (Aug. 9, 2010) |loroinaflor Primc Minisicrs Opcn Dccr 1csiimcnj.
83 Il slouId aIso bo nolod llal in llo poriod from Iobruary 2009 lo }anuary 2010 a numbor
of Iand convoys allomplod lo onlor Gaza llrougl ils bordor vill Igypl. A Iand convoy
loadod by a Brilisl Mombor of IarIiamonl vlicl incIudod 3,000 parlicipanls vas
pormillod lo onlor llo Slrip llrougl llo Rafal crossing. An addilionaI convoy incIuding
225 parlicipanls vas aIIovod lo onlor llo slrip in }uIy 2009 in a roducod capacily incIuding
55 aclivisls and 50 volicIos. In Docombor 2009 anollor convoy doparlod from a numbor of
counlrios in Iuropo. Tlo Turkisl organizalion namod llo IHH, vloso parlicipalion in llo
fIoliIIa vo viII discuss Ialor, assislod in llo lransporlalion of parlicipanls from Turkoy lo
II Arisl. Aflor llo Igyplians pIacod various Iimilalions on llo convoy onIy aboul laIf llo
provisions voro pormillod lo onlor llo Gaza Slrip llrougl llo Rafal bordor crossing. In
addilion, lloro voro rioling by llo parlicipanls in llo II Arisl rogion and confronlalions
vill llo Igyplian socurily forcos. During llo confronlalions, aboul 50 parlicipanls of llo
convoy voro injurod, incIuding fivo in a crilicaI mannor. Tlo Ioador of llo IHH BuIonl
YiIdirim Ialor admillod llal during llo confronlalion sovon Igyplian soIdiors voro lakon
loslago, Soo aIso: ||CC rcpcri (}un. 20, 2010) (aII of llo roporls rocoivod from llo IICC voro
markod by llo Commission and aro found in an oxlibil markod by llo Commission as
foIdor no. 150, loroaflor, aII of llo oxlibils in llis bindor viII bo caIIod ||CC rcpcri and
viII bo dislinguislod by lloir dalo of issuanco), ||CC rcpcri (}uI. 19, 2010).
The Questinns beInre the Cnmmissinn
28. In llis parl of llo roporl, llo Commission viII addross llo
foIIoving quoslions:
a. Wlal is a navaI bIockado, and vlal aro llo IogaI ruIos llal govorn
llo imposilion and llo acluaI onforcomonl of sucl a bIockado`
b. Did IsraoI acl in accordanco vill lloso ruIos`
c. Wlal IogaI obIigalions doos IsraoI lavo vis--vis llo Gaza Slrip`
Doos llo navaI bIockado lavo an impacl on llo lumanilarian
silualion in llo Gaza Slrip llal rondors il conlrary lo inlornalionaI
Iav`
d. Do individuaIs or groups lavo a rigll undor inlornalionaI Iav lo
disrogard an oslabIislod bIockado`
The CnnInrmity nI the NavaI BInckade with
InternatinnaI Law
The IegaI Iramewnrk
!"# %&'%#() &* + ,'+-+. /.&%0+1#2 3' 4#'#5+.
29. Tlo lorm "bIockado" is froquonlIy usod lo covor divorso and oflon
compIox miIilary oporalions.
84
WliIo llo lorm bIockado is somolimos
usod lo rofor lo Iand oporalions, llo mosl common conloxl in vlicl llo
lorm appoars is in navaI oporalions. HisloricaIIy, llo concopl difforod
onIy sIigllIy from llo concopl of a 'siogo
85
bul il slouId bo omplasizod
llal a navaI bIockado is nol idonlicaI lo a siogo. Wloroas a siogo moans llo
oncircIing of llo onomys miIilary forcos, a slralogic forlross, or any ollor
Iocalion dofondod by llo onomy, and culling il off from supporl and suppIy
Iinos, a navaI bIockado doscribos a vidor varioly of oporalions.
86
Tlus, for
84 0/, :/%&$,& *; $/, <-"$,3 =%$"*-1> 2 :*..,-$%&', VoI I 755 (Bruno Simma ol aI.
ods., 2nd od., 2002):
85 "Tlo concopl of bIockado doos nol assumo a loclnicaI Iav-of-var sonso, bul rallor poinls
lo miIilary aclion vill a viov lo soaIing off parlicuIar coasls or Iand aroas".
Tlo lorm "BIockado" is dofinod in llo onIino Oxford Diclionary (2010) as:
"an acl or moans of soaIing off a pIaco lo provonl goods or poopIo from onloring or Ioaving:
i|c tcic! ic IiIt the bInckade c| m.jcr r.i|u. junciicns. Origin: Ialo 17ll conlury: from
bIock + -ado, probabIy infIuoncod by .mousc.!".
WoIff HoinlscloI von Hoinogg, N.t.| B|cc|.!c, 75 5-$?# 6@ A$B3@ A,&@ <@A@ =%+%# C%&
:*#@ 203, 205 (2000).
86 D*&%. E"-1$,"-F 0/, :*-3B9$ *; G*1$"#"$",1 B-3,& $/, 6%H *; 5-$,&-%$"*-%#
2&.,3 :*-;#"9$ 133 (2004):
oxampIo, in a curronl coIIoclion of arlicIos pubIislod as N.t.| B|cc|.!cs
.n! Sc.pcucr. Sir.icgics .n! Ccunicr-Sir.icgics, 1805-2005 (loroaflor: N.t.|
B|cc|.!cs .n! Sc.pcucr), il las boon nolod llal:
'. vliIo IogaI dofinilions of navaI bIockados allompl lo bo
prociso, llo rango of aclivilios llal lavo lisloricaIIy fil undor llis
rubric aro vasl indood.
87
N.t.| B|cc|.!cs .n! Sc.pcucr providos oiglloon oxampIos of marilimo
bIockado oporalions incIuding lloso llal voro conduclod during llo lvo
WorId Wars, in llo confIicl bolvoon llo IoopIos RopubIic of Clina and
llo RopubIic of Clina (Taivan) (in 1949-1958), in llo Koroan War (1950-
1953), during llo Cuban MissiIo Crisis (1962), in llo Violnam War, during
llo sanclions againsl Iraq (1990-2003), olcolora.
88
NavaI bIockados voro
aIso imposod, inicr .|i., in llo BangIadosl Iiboralion War in 1971, by
Igypl againsl llo cily of IiIal and llo GuIf of Aqaba in 1967, and on llo
Bab oI-Mandob Slrail in 1973,
89
during llo Iran-Iraq War of 1980-1988,
90

and by IsraoI on llo coasls of Iobanon during llo Socond Iobanon War
(Marcl 2006).
91
Tlo varioly of oxampIos and conloxls in vlicl navaI
bIockados voro imposod slovs llo rango of miIilary aclions llal lavo
lisloricaIIy boon incIudod in llo lorm 'navaI bIockado. WliIo a slricl IogaI
assossmonl migll claIIongo vlollor somo of lloso oporalions mool llo
loclnicaI IogaI roquiromonls of a 'bIockado', il is cIoar llal provonling llo
onomy from laving accoss lo llo marilimo aroa on vlicl llo bIockado
las boon imposod, and provonling il from boing abIo lo rocoivo suppIios
and assislanco via llal aroa, vas and romains an inlograI parl of llis
87 "Siogo varfaro is conduclod by oncircIing an onomy miIilary conconlralion, a slralogic
forlross or any ollor Iocalion dofondod by llo onomy, culling il off from clannoIs of
supporl and suppIy".
6@ I88,-/,".F 5-$,&-%$"*-%# 6%H> 2 0&,%$"1,J K*# 55> E"18B$,1F C%& %-3
=,B$&%#"$' 768 (7ll od., H. Iaulorpacll od., 1952):
"BIockado musl nol bo confusod vill siogo, aIllougl il may lako pIaco concurronlIy vill
siogo".
=%+%# L#*9M%3,1 %-3 A,%8*H,&> A$&%$,7",1 %-3 :*B-$,&NA$&%$,7",1 OPQRN
SQQR 4 (Bruco A. IIIoman & S.C.M. Iaino ods., 2006).
88 |!., soo aIso ix-xi (dolaiIs of difforonl subjocls in labIo of conlonls).
89 Hcinisc|c| tcn Hcincgg, |ni| I. Siu!, supr. nolo 85, al 211-212.
90 |!.
91 2-$/*-' G@ :*&3,1.%-F ),*&7, AB##"+%- T C"##"%. E@ AB##"+%-, 6,11*-1
*; $/, SQQU 51&%,#"NG,V4*##%/ C%& 131-135 (Significanl Issuos Sorios 29(4),
2007), WoIff HoinlscloI von Hoinogg, B|cc|.!c, !%W X#%-9M Y-9'9#*8,3"% *;
XB4#"9 5-$,&-%$"*-%# 6%H (R1digor WoIfrum, od., 2010), .t.i|.o|c .i vvv.
mpopiI.com/subscribor_arlicIo`scripl=yos&id=/opiI/onlrios/Iav-9780199231690-
o252&rocno=3&aullor=HoinlscloI_von_Hoinogg_WoIff |loroinaflor Hcinisc|c| tcn
Hcincgg, |P|Ij. nd a navaI bIockado vas imposod by IsraoI on llo coasls of Iobanon
during llo Socond Iobanon War (Marcl 2006).lo dispulo sizod
mollod of varfaro.
92
Indood, imposing navaI bIockados is 'a basic and
fundamonlaI aclivily of navios.
93
30. Tlo imposilion of a navaI bIockado may lavo various purposos.
Ono purposo is llo slralogic miIilary ono of fruslraling giving possibIo
aid lo llo onomys miIilary oporalions or provonling llo lransporl of
voapons or suppIios lo a miIilary forco oporaling in llo counlry vloso
coasl is subjocl lo llo bIockado.
94
Hovovor, a uniquo aspocl of bIockado
as a mollod of varfaro is llal in viov of ils impacl on llo commorciaI
roIalions bolvoon llo bIockadod boIIigoronl and noulraIs, a bIockado is
roguIarIy considorod a mollod of oconomic varfaro.
95
As llo ominonl
IsraoIi inlornalionaI scloIar and formor mombor of llis Commission, llo
Ialo Ambassador Slablai Rosonno nolod, ono of llo groalosl advanlagos
of a navaI bIockado is llo abiIily lo offoclivoIy crippIo an onomy's oxlornaI
lrado, vlicl is a Iogilimalo objocl in armod confIicl.
96
!"# .#4+. 6&75%#6
31. Tlo Iav of llo soa, vlicl is llo IogaI framovork llal normaIIy
appIios in limos of poaco, conslilulos ono of llo oIdosl fioIds in
inlornalionaI Iav. Mucl of llo Iav of llo soa is codifiod by llo Unilod
Nalions Convonlion on llo Iav of llo Soa of Docombor 10, 1982 (loroaflor:
UNCLO5).
97
Tlo Slalo of IsraoI is nol a parly lo llis convonlion, bul il
is bound by lloso provisions llal aro rogardod as laving cuslomary
slalus.
98
Ior our purposos, lvo basic principIos in llo Iav of llo soa aro
of parlicuIar imporlanco: (1) sovoroignly of llo fIag Slalo, vlicl moans
llal slips on llo ligl soas (i.o. in inlornalionaI valors) aro subjocl lo llo
92 Soo, for oxampIo, U. S. Navy, 0/, :*..%-3,&?1 G%-34**M I- 0/, 6%H I; =%+%#
I8,&%$"*-1 4-9 (2007), Soo aIso Hcinisc|c| tcn Hcincgg, |ni| I. Siu!, supr. nolo 85, al 211.
93 =%+%# L#*9M%3,1 %-3 A,%8*H,&F supr. nolo 87, al xviii.
94 Soo :*-1$%-$"-, Z*/- :*#*.4*1F 0/, 5-$,&-%$"*-%# 6%H *; $/, A,% 716-717
(1967), I88,-/,".F supr. nolo 86, al 769-770.
(vlo boll uso llo lorm "slralogic" vlon roforring lo a bIockado llal forms parl of ollor
miIilary oporalions and "commorciaI" vlon llo objocl of llo bIockado is lo cul off aII lrado
from llo bIockadod aroa).
95 Hcinisc|c| tcn Hcincgg, |P|I, supr. nolo 91, al para. 1, soo aIso G,&19/ 6%B$,&8%9/$F
5-$,&-%$"*-%# 6%H> :*##,9$,3 8%8,&1J K*#B., R> E"18B$,1F C%& %-3 =,B$&%#"$'F
8%&$1 "WNW"+ UUO (IIilu Iaulorpacll od., 2004), :*#*.4*1F 0/, 5-$,&-%$"*-%# 6%H *;
$/, A,%, |!.
96 Slablai Rosonno, Mc!crn B|cc|.!c. Scmc Icg.| Aspccis, 23 L&"$"1/ D,%& L**M *; 5-$?#
6%H 346, 347-353 (1946).
97 Unilod Nalions Convonlion on llo Iav of llo Soa, Doc. 10, 1982, 1833 U.N.T.S. 397
|loroinaflor UNCIOSj.
98 Transcripl of sossion no. 4 "Toslimony of llo MiIilary Advocalo-GonoraI" (Augusl 26,
2010), al 32 |loroinaflor Mi|ii.r A!tcc.ic-Gcncr.|s icsiimcnj.
jurisdiclion of llo Slalo vloso fIag lloy boar,
99
(2) froodom of llo ligl
soas, vlicl is a fundamonlaI principIo in modorn Iav of llo soa, moaning,
inicr .|i., llal aII slips aro onlilIod lo compIolo froodom of movomonl in
llo ligl soas. Impoding llo froodom of navigalion of a slip on llo ligl
soas is IikoIy lo bo rogardod as a vioIalion of llo sovoroignly of llo fIag
Slalo, unIoss consonl of llo fIag Slalo las boon oblainod or if pormillod
on anollor ground in inlornalionaI Iav. Tlis principIo appIios nol onIy
in limos of poaco, bul aIso lo noulraI slipping in limos of armod confIicl.
AdmillodIy, lloro lavo boon proposaIs lo prolibil uso of llo soa
for miIilary purposos aIlogollor, bul lloso offorls lavo oncounlorod
opposilion. Tlo Iavs of llo soa do nol oporalo in isoIalion from ollor
ruIos and principIos of inlornalionaI Iav,
100
in parlicuIar, llo admissibiIily
and IogaIily of miIilary usos of llo soa dorivo from llo Iavs of navaI
varfaro, ruIos of noulraIily, and principIos of cuslomary inlornalionaI
Iav.
101
AccordingIy, in limos of armod confIicl, llo Iav of navaI varfaro,
as |cx spcci.|is, provaiIs ovor llo Iav of llo soa.
102
In ollor vords, llo ruIos
of inlornalionaI Iav pormil a boIIigoronl Iarly lo roslricl llo oporalion of
noulraI vossoIs, vill llo rosuIl llal somo of llo riglls of noulraI nalions
aro sol asido in favor of a Slalo ongagod in llo armod confIicl.
103
32. Tlo ruIos llal roguIalo llo imposilion of a navaI bIockado aro parl
of llo Iavs of navaI varfaro and mosl of llo lavo llo slalus of cuslomary
inlornalionaI Iav. Cuslomary inlornalionaI Iav is an inlograI parl of
IsraoIi Iav.
104
Indood, allompls voro mado in llo Iaris DocIaralion of
1856 and llo Iondon DocIaralion of 1909 lo codify llo ruIos, bul llo Iaris
DocIaralion vas signod by onIy sovon Slalos and llo Iondon DocIaralion
vas novor givon binding forco, lovovor, il is accoplod llal llo cuslomary
99 A llird principIo of imporlanco is llo principIo of lorriloriaI valors, according lo vlicl,
unIiko llo arrangomonl vlicl appIios lo inlornalionaI valors, in a counlrys lorriloriaI
valors vossoIs aro nol aIIovod froodom of movomonl. Tloso valors aro undor llo
jurisdiclion of llo coaslaI counlry and il is aullorizod lo provonl vossoIs from onloring il,
oxcIuding pIacos vloro llis is roquirod villin llo framovorks of "innoconl passago," llal
is, a passago nocossary for quick and officionl arrivaI al llo vossoIs doslinalion (incIuding
llo porl of said counlry) or diclalod by forco majouro or llo vossoIs dislross, and vlicl
doos nol disrupl llo poaco, ordor, or socurily of llo coaslaI counlry. Soo Mi|ii.r A!tcc.ic-
Gcncr.|s icsiimcn, supr. nolo 98, al 33. MAG pcsiiicn p.pcr, supr. nolo 1, al 33.
100 Soo llo inlroduclion lo UNCIOS, supr. nolo 97: "mallors nol roguIalod by llis Convonlion
conlinuo lo bo govornod by llo ruIos and principIos of gonoraI inlornalionaI Iav".
101 Ior addilionaI anaIysis of llo Iav soo ),*&7, X@ X*#"$%M"1F !*3,&- 218,9$1 *; $/,
6%H1 *; =%+%# C%&;%&, %-3 !%&"$"., =,B$&%#"$' (1998), C*#;; G,"-$19/,# +*-
G,"-,77F A,,M&",71&,9/$ B-3 =,B$&%#"$[$ ". A,,M&",7 (BorIin, 1995).
102 InlornalionaI Iav Associalion, Commilloo on Marilimo NoulraIily, Iin.| Rcpcri ic i|c
Sixi-|ig|i| Ccn|crcncc 496-521, al 498 (Iondon 1998).
103 I88,-/,"., supr. nolo 86, al 769-770.
104 1.rgcic! Ki||ing caso, supr. nolo 37, al para. 19.
inlornalionaI lumanilarian Iav govorning bIockados is IargoIy basod on
llo Iondon DocIaralion of 1909.
105
Tlo dovoIopmonl of lloso cuslomary ruIos ovor llo lvonlioll
Conlury sav a numbor of disagroomonls, sucl as vlal conslilulod
offoclivonoss (a roquiromonl for navaI bIockados, discussod boIov) vill
rogard lo llo imposilion of a navaI bIockado, and vlollor il is pormillod
lo oporalo vossoIs al a dislanco from llo coasl of a parly lo llo confIicl,
uIlimaloIy boing rosoIvod.
106
In llo lvo WorId Wars, slalos did nol acl in
accordanco vill llo ruIos appoaring in llo Iondon DocIaralion of 1909,
107

vlicl gavo riso lo llo quoslion vlollor llis mollod of varfaro lad
fundamonlaIIy clangod.
108
Hovovor, dospilo llo claIIongos prosonlod
by sucl Iargo-scaIo confIicls, sinco 1945, Slalos lavo, in gonoraI, lakon
caro lo oporalo villin llo Iimilalions of llo lradilionaI ruIos govorning
bIockados.
109
33. Al llo ond of llo lvonlioll conlury, il bocamo cIoar llal il vas
nocossary lo updalo llo undorslanding of llo ruIos govorning bIockados
bocauso of llo dalod naluro of llo Iav, llo inlroduclion of nov loclnoIogy
and modorn mollods and moans of varfaro, llo dovoIopmonl of llo Iav
govorning armod confIicl aflor llo Socond WorId War, incIuding llo Iirsl
AddilionaI IrolocoI lo llo Gonova Convonlions, and dovoIopmonls in
ollor fioIds of inlornalionaI Iav, sucl as llo Iav of llo soa, llo Unilod
Nalions Clarlor, onvironmonlaI proloclion Iav, and Iavs of aoriaI
105 Soo Hcinisc|c| tcn Hcincgg, |ni| I. Siu!, supr. nolo 85, al 205-213 for a briof lislory of llo
dovoIopmonl of navaI bIockado Iavs, parlicuIarIy lis slalomonls on pago 214:
106 "In gonoraI Slalos aro viIIing lo accopl llo cuslomary claraclor of llo principIos Iaid dovn
in llo 1909 Iondon DocIaralion".
Soo aIso, Cc||cciicns c| Dccumcnis cn i|c I.u c| Armc! Ccn||ici, H.guc Ccntcniicns, Gcnct.
Ccntcniicns A!!iiicn.| Prciccc|s, C|.ricr c| i|c Uniic! N.iicns, UNCIOS, Oi|cr 1rc.iics
.n! Rc|.ic! C.n.!i.n Si.iuics (Ccnccrning gcncr.| |.n!, sc., .ir, ncuir.|ii, |um.nii.ri.n
|.u, !is.rm.mcni .n! .nii-pcrscnnc| |.n! mincs (Dirocloralo of Iav Training, od., 2005),
.t.i|.o|c .i vvv.forcos.gc.ca/jag/pubIicalions/Training-formalion/coII_docs_IOAC-
DDCA_2005_ong.pdf.
Hcinisc|c| tcn Hcincgg, |ni| I. Siu!, supr. nolo 85, al 205-213.
107 Soo Hcinisc|c| tcn Hcincgg, |P|I, supr. nolo 91, al 205-209, vlicl oxpIains llal llo
bIockado syslom mado uso of lorms Iiko "conlinuous voyago" vlon llo slips saiIing lo a
noulraI porl couId bo caplurod, if lloir finaI doslinalion vas a porl undor bIockado and
Iong dislanco bIockados voro mado possibIo by loclnoIogicaI advancomonl sucl as Iong
rango arliIIory, submarinos, and miIilary aircrafls, vlo lavo mado a bIockado cIoso lo llo
onomys sloro impossibIo lo suporviso. Soo aIso, Gooffroy TiII, N.t.| B|cc|.!c .n! |ccncmic
W.r|.rc in i|c |urcpc.n W.r, 1939-45, in =%+%# L#*9M%3,1 %-3 A,%8*H,&F supr. nolo
87, al 123 (rogarding llo Navicorl corlificalion syslom vlicl vas ompIoyod by Brilisl
cIorks abroad during llo socond WorId War, vlicl approvod cargoos and ovon vloIo
slips), Rosonno, Mc!crn B|cc|.!c, supr. nolo 96, al 347-349.
108 Hcinisc|c| tcn Hcincgg, |ni| I. Siu!, supr. nolo 85, al 211-212.
109 |!., al 211, soo aIso U.S. N.t, 1|c Ccmm.n!crs H.n!occ|, supr. nolo 92, al para. 7.7.5.
varfaro.
110
In llo yoars 1988-1994, a group of oxporls ongagod in an allompl
lo combino llo ruIos govorning llo Iav of navaI varfaro vill innovalions
and nov lronds in llis fioId. Tlo rosuIl vas llo 1994 San Romo ManuaI
on InlornalionaI Iav AppIicabIo lo Armod ConfIicls al Soa (loroaflor: 5an
Remn ManuaI), vlicl offors a dolaiIod curronl slalomonl of llo cuslomary
inlornalionaI Iav of navaI varfaro, incIuding navaI bIockados. Tlis
manuaI viII sorvo as llo primary basis for llo IogaI anaIysis of llo issuos
boforo llo Commission. Hovovor, sinco somo of llo provisions in llo
San Romo ManuaI aro rogardod as rofIocling a progrossivo dovoIopmonl
of llo Iav rallor llan moroIy a roslalomonl lloroof, llo anaIysis boIov
is aIso basod on ollor accoplod loxls and manuaIs in ordor lo idonlify
aroas vloro lloro may nol bo compIolo inlornalionaI consonsus on llo
San Romo ruIos.
111
Hovovor, il slouId aIso bo nolod llal llo aroas of
divorgonco aro Iimilod.
34. Duo lo llo infIuonliaI roIo llal llo Unilod Slalos Navy pIays in
navaI mallors, roforonco viII aIso bo mado lo llo 200 Ccmm.n!crs
H.n!occ| On 1|c I.u O| N.t.| Opcr.iicns NWP 1-14M (loroaflor: the U.5.
Navy Cnmmander's Handbnnk).
112
ManuaIs of ollor slalos rogarding llo
Iav of armod confIicl
113
and acadomic loxls
114
viII sorvo as addilionaI
sourcos. Tlo 2009 H.rt.r! M.nu.| cn |nicrn.iicn.| I.u App|ic.o|c ic Air
.n! Missi|c W.r|.rc (loroaflor: the Harvard Air and MissiIe WarIare
ManuaI),
115
aIllougl il concorns aoriaI rallor llan navaI bIockados
110 Soo San Romo ManuaI on InlornalionaI Iav AppIicabIo lo Armod ConfIicls al Soa (Iouiso
DosvaId-Bock od., 1995) |loroinaflor S.n Rcmc M.nu.| vlon roforring lo llo provisions,
and S.n Rcmc |xp|.n.iicn vlon roforring lo llo accompanying oxpIanalory loxlj.
111 S.n Rcmc |xp|.n.iicn (profaco).
112 Soo aIso U.S. N.t, 1|c Ccmm.n!crs H.n!occ|, supr. nolo 92.
113 Ior oxampIo, 1|c M.nu.| c| 1|c I.u c| Armc! Ccn||ici. UK Minisir c| Dc|cncc (2004),
.t.i|.o|c .i vvv.mod.uk/DofoncoInlornol/AboulDofonco/CorporaloIubIicalions/
IogaIIubIicalions/IavOfArmodConfIicl/ |loroinaflor 1|c UK M.nu.|j, llo C.n.!i.n
I.u c| Armc! Ccn||ici .i i|c Opcr.iicn.| .n! 1.ciic.| Ictc| (2001), .t.i|.o|c .i vvv.forcos.
gc.ca/jag/pubIicalions/Training-formalion/IOAC-DDCA_2004-ong.pdf |loroinaflor
1|c C.n.!i.n M.nu.|j, 0/, G%-34**M *; 5-$,&-%$"*-%# GB.%-"$%&"%- 6%H (Diolor
IIock, od., 1sl od., 1995 and 2nd od., 2008) (llo koy slalomonls in llo Handbook of
InlornalionaI Humanilarian Iav voro promuIgalod for llo Gorman Bundosvolr as }oinl
Sorvicos RoguIalions (ZDv) 15/2 lo guido llo conducl of miIilary oporalions) |loroinaflor
1|c Gcrm.n M.nu.|, vlon roforring lo ils koy slalomonls, or |nicrn.iicn.| Hum.nii.ri.n
I.u H.n!occ|, vlon roforring lo ils commonlariosj.
114 E"-1$,"-F 0/, :*-3B9$ *; G*1$"#"$",1 B-3,& $/, 6%H *; 5-$,&-%$"*-%# 2&.,3
:*-;#"9$, supr. nolo 86, 6,1#", :@ )&,,-F 0/, :*-$,.8*&%&' 6%H *; 2&.,3
:*-;#"9$ (2nd od., 2000), |nicrn.iicn.| Hum.nii.ri.n I.u H.n!occ|, supr. nolo 113, |!.
115 Humanilarian IoIicy and ConfIicl Rosoarcl al Harvard Univorsily (HICR), 'Tlo
Commonlary on llo Humanilarian IoIicy and ConfIicl Rosoarcl (HICR) ManuaI on
InlornalionaI Iav AppIicabIo lo Air and MissiIo Warfaro', (Mar. 2010), .t.i|.o|c .i
lllp://ilIrosoarcl.org/amv/Commonlary20on20llo20HICR20ManuaI.pdf.
|loroinaflor 1|c Air .n! Missi|c W.r|.rc M.nu.|j.
(ovon vlon onforcod by miIilary pIanos, as in llo oporalions lo onforco
llo navaI bIockado on May 31, 2010), aIso providos a usofuI bonclmark
againsl vlicl lo assoss llo dogroo lo vlicl a consonsus in llo appIicabIo
Iav las dovoIopod ovor limo.
116
!"# .#4+. 1#*3'3)3&' &* )"# )#58 ,'+-+. /.&%0+1#2 +'1 )"# 57.#6
4&-#5'3'4 3)6 38(&63)3&' +'1 #'*&5%#8#')
35. A vidoIy accoplod dofinilion of llo lorm 'bIockado can bo found
in llo U.S. Navy Commandors Handbook:
'BIockado is a boIIigoronl oporalion lo provonl vossoIs and/or
aircrafl of aII nalions, onomy as voII as noulraI, from onloring
or oxiling spocifiod porls, airfioIds, or coaslaI aroas boIonging lo,
occupiod by, or undor llo conlroI of an onomy nalion.
117
36. Irovisions 93-104 of llo San Romo ManuaI covor llo imposilion
and onforcomonl of a navaI bIockado. Tloso ruIos provido llal a bIockado
slouId bo docIarod and nolifiod,
118
sucl a docIaralion slouId spocify
llo commoncomonl, duralion, Iocalion and oxlonl of llo bIockado,
119

llo bIockado musl bo 'offoclivo,
120
llo forco mainlaining llo bIockado
may bo slalionod al a dislanco from llo coasl dolorminod by miIilary
roquiromonls,
121
llo bIockado may bo onforcod by a combinalion of
Iogilimalo mollods and moans of varfaro,
122
accoss lo llo porls and coasls
of noulraI Slalos may nol bo bIockod,
123
llo bIockado slouId bo appIiod
imparliaIIy lo llo vossoIs of aII Slalos,
124
and any cossalion, lomporary
Iifling, ro-oslabIislmonl, oxlonsion or ollor aIloralion of a bIockado musl
bo docIarod and nolifiod.
125
Tlo San Romo ManuaI aIso spocificaIIy addrossos llo lumanilarian
aspocls of imposing and onforcing of a navaI bIockado, and prolibils llo
imposilion of a navaI bIockado if ils soIo purposo is lo slarvo llo civiIian
116 |!., Tlo Air and MissiIo Warfaro ManuaI roprosonls llo "mosl up lo dalo ro-slalomonl
of oxisling inlornalionaI Iav appIicabIo lo air and missiIo varfaro, as oIaboralod by an
inlornalionaI Group of Ixporls of bIockado Iav al Ioasl vloro llo uso of aircrafl is
concornod.
117 Soo aIso U.S. N.t, 1|c Ccmm.n!crs H.n!occ|, supr. nolo 92, al para. 7.7.1, Hcinisc|c| tcn
Hcincgg, |P|I, supr. nolo 91, al para. 1 (vlicl adopls llo samo dofinilion).
118 Soo S.n Rcmc M.nu.|, supr. nolo 110, al 26, ruIo 93.
119 Soo |!., al ruIo 94.
120 Soo |!., al ruIo 95.
121 Soo |!., al ruIo 96.
122 Soo |!., 27, al ruIo 98.
123 Soo |!., al ruIo 99.
124 Soo |!., al ruIo 100.
125 Soo |!., al ruIo 101.
popuIalion, or provonl objocls ossonliaI for ils survivaI.
126
Iurllor, llo
imposilion of a navaI bIockado is aIso prolibilod if llo damago lo llo
civiIian popuIalion is, or may bo oxpoclod lo bo, oxcossivo in roIalion lo
llo concrolo and dirocl miIilary advanlago anlicipalod from llo bIockado.
127

Tlis is llo principIo of 'proporlionaIily. Moroovor, subjocl lo corlain
condilions, llo bIockading parly musl provido froo passago of foodsluffs
and ollor ossonliaI objocls if llo civiIian popuIalion is inadoqualoIy
providod vill lloso suppIios.
128
SimiIarIy, subjocl lo llo rigll of llo
bIockading parly lo proscribo llo loclnicaI arrangomonls, llo passago
of modicaI suppIios lo llo civiIian popuIalion or llo voundod and sick
mombors of onomy forcos musl bo pormillod.
129
As nolod, llo ruIos llal concorn llo imposilion and onforcomonl of
a navaI bIockado appIy during armod confIicl. Tloroforo, llo anaIysis viII
nov lurn lo oxamino llo quoslion of llo naluro of llo confIicl in llo Gaza
Slrip, bocauso llis dolorminalion impacls llo assossmonl of llo navaI
bIockado imposod by IsraoI.
The cnnIIict in the Gaza 5trip
!"# %.+663*3%+)3&' &* )"# %&'*.3%) /#)9##' :65+#. +'1 )"# ;+8+6
+'1 )"# 38(.3%+)3&'6 &* )"36 %.+663*3%+)3&' *&5 )"# '+-+. /.&%0+1#
37. InlornalionaI Iav dislinguislos bolvoon lvo lypos of armod
confIicl: inlornalionaI armod confIicl and non-inlornalionaI armod confIicl.
In llo lradilionaI-formaI sonso, inlornalionaI lumanilarian Iav cIassifiod
'inlornalionaI armod confIicl as var bolvoon Slalos.
130
According lo
llis approacl, a confIicl bolvoon a Slalo and a non-slalo aclor vouId
bo rogardod as a non-inlornalionaI armod confIicl. Hovovor, in roaIily,
llo compIoxilios of modorn varfaro poso a significanl claIIongo vlon
cIassifying an armod confIicl, sinco nol aII armod confIicls can bo oasiIy
cIassifiod villin llo framovork of llo lradilionaI dofinilion.
38. Tlo imporlanco of cIassifying llo armod confIicl bolvoon IsraoI and
llo Hamas is a consoquonco of llo facl llal llo inlornalionaI communily
is moro viIIing lo accopl llo imposilion of a navaI bIockado villin llo
126 Soo |!., al ruIo 102(a).
127 Soo |!., al ruIo 102(b).
128 Soo |!., al ruIo 103.
129 Soo |!., al ruIo 104.
130 Soo )&,,-F 0/, :*-$,.8*&%&' 6%H *; 2&.,3 :*-;#"9$F supr. nolo 114, al 54, vloro
lo monlions llal llo cIassic approacl is llal inlornalionaI Iav doaIs onIy vill roIalions
bolvoon counlrios. As a rosuIl of llis, llo confIicl bolvoon counlrios is vlal llis Iav
roguIalos.
framovork of an inlornalionaI armod confIicl. Tlis is IikoIy llo rosuIl of
lvo inlorroIalod faclors. Iirsl, llo ruIos govorning navaI bIockados voro
dovoIopod villin llo framovork of inlornalionaI confIicls, vloroas,
lradilionaIIy, Slalos lavo domonslralod a roIuclanco lo appIy inlornalionaI
lumanilarian Iav lo inlornaI dispulos. Socond, llo imposilion of a navaI
bIockado usuaIIy causos a disruplion of lrado vill parlios llal aro noulraI
lo llo confIicl, an aclivily usuaIIy carriod oul by Slalos or vill lloir
approvaI. Tloroforo, Slalos lavo a parlicuIar inlorosl in llo issuo of vlon
and lov navaI bIockados aro inslilulod and onforcod.
39. NavaI bIockados lavo, novorlloIoss, boon imposod in non-
inlornalionaI armod confIicls (vlicl is nol surprising in viov of llo Iargo
numbor of inlornaI armod confIicls roIalivo lo llo numbor of inlornalionaI
armod confIicls llrougloul lislory). In corlain silualions, Slalos lavo
imposod a miIilary or oconomic bIockado againsl an onomy llal is nol a
!c jurc govornmonl.
131
HisloricaIIy, in ordor for llo ruIos of inlornalionaI
lumanilarian Iav llal govorn inlornalionaI armod confIicls lo appIy lo
non-inlornalionaI onos, rocognilion of a 'boIIigoroncy vas roquirod of
ollor Slalos. Sucl rocognilion vas Iimilod lo circumslancos in vlicl llo
IovoI of llo confIicl las roaclod 'a corlain llrosloId of inlonsily manifosling
a silualion simiIar lo llal of a var bolvoon slalos.
132
Hovovor, il slouId bo
nolod llal llis las bocomo Ioss imporlanl and loday is aImosl irroIovanl.
133
40. Tlo MiIilary Advocalo-GonoraI, Major-GonoraI Aviclai MandoIbIil,
loslifiod boforo llo Commission on llo difficuIly of cIassifying llo confIicl
bolvoon IsraoI and llo Hamas lorrorisl organizalion.
134
In lis loslimony,
131 Soo aIso Prcsccuicr t. 1.!ic, AppoaIs }udgmonl, No. IT-94-1-A, para. 84 (}uIy 15, 1999):
"|ijl is indispulabIo llal an armod confIicl is inlornalionaI if il lakos pIaco bolvoon lvo or
moro Slalos".
Soo aIso Icg.| Ccnscucnccs O| 1|c Ccnsiruciicn O| A W.|| |n 1|c Occupic! P.|csiini.n
1crriicr, I.C.}., (}uI., 2004) al 56, para. 139, .t.i|.o|c .i vvv.icj-cij.org/icjvvv/idockol/
imvp/imvpframo.llm |loroinaflor i|c W.|| casoj (vloro llo IC} indicalod llal llo
oxorciso of inloronl rigll lo soIf-dofonso undor s. 51 of llo Unilod Nalions Clarlor is onIy
avaiIabIo vloro lloro las boon an allack by ono Slalo againsl anollor Slalo).
Tlo mosl famous oxampIo of sucl a bIockado vas llo bIockado pIacod by Union slalos on
llo Confodoralo slalos during llo Amorican CiviI War bolvoon 1861-1865. In llo poriod
foIIoving llo Socond WorId War, vo may namo llo confIicl of llo "nalionaIisls" vill llo
IoopIos RopubIic of Clina (1949-1958). Soo o.g., :*#*.4*1F 5-$,&-%$"*-%# 6%H *;
$/, A,%, supr. nolo 94, al 714-730 (for roforoncos lo lisloricaI oxampIos of bIockados by
and againsl insurgonls) and David G. Surdam, 1|c Unicn N.ts B|cc|.!c Rc-ccnsi!crc!, in
=%+%# L#*9M%3,1 %-3 A,%8*H,&, supr. nolo 87, al 61.
132 2-$/*-' :B##,-F 0/, :*-9,8$ *; =*-N5-$,&-%$"*-%# 2&.,3 :*-;#"9$ "-
5-$,&-%$"*-%# GB.%-"$%&"%- 6%H 17 (2010).
133 1|c UK M.nu.|, supr. nolo 113, al 382, Soo aIso :B##,-, supr. nolo 132, al 22-23.
134 Mi|ii.r A!tcc.ic-Gcncr.|s icsiimcn, supr. nolo 98, al 11-19, IsraoI and sovoraI ollor Slalos
lavo rocognizod llo Hamas as a lorrorisl organizalion: lloso incIudo llo Unilod Slalos
(vvv.slalo.gov/s/cl/rIs/ollor/dos/123085.llm), Canada (vvv.pubIicsafoly.gc.ca/
lo said llal aflor Oporalion Casl Ioad, IsraoI adoplod llo posilion llal
il is bound by llo Iavs of var llal appIy lo boll inlornalionaI armod
confIicl and non-inlornalionaI armod confIicl.
135
Tlo MiIilary Advocalo
slalod llal, in praclico, llo IDI lloroforo focusos on compIianco vill llo
ruIos of inlornalionaI lumanilarian Iav.
136
41. WliIo armod confIicls vill non-Slalo parlios lavo boon rocognizod
as a non-inlornalionaI in claraclor,
137
llis approacl las nol boon univorsaIIy
adoplod. Ior oxampIo, lloro is a consonsus llal llo confIicl bolvoon llo
Slalo of IsraoI and llo Hamas is an inlornalionaI armod confIicl, aIllougl
llo roasons llal lavo Iod various parlios lo llis concIusion vary, as vo
slaII soo boIov.
Indood, in HC} 769/02 Puo|ic Ccmmiiicc Ag.insi 1criurc t.
Gctcrnmcni |2006j (4) TakSC 3958, |2006j (2) IsrIR 459 (loroaflor: the
Targeted KiIIings case), llo Supromo Courl of IsraoI adoplod llo posilion
llal inlornalionaI lumanilarian Iav appIios lo an armod confIicl bolvoon
IsraoI and lorrorisl organizalions nol moroIy in an aroa llal is subjocl
lo occupalion, bul 'in any caso of an armod confIicl of an inlornalionaI
claraclor - in ollor vords, ono llal crossos llo bordors of llo slalo -
vlollor or nol llo pIaco in vlicl llo armod confIicl occurs is subjocl lo
a boIIigoronl occupalion.
138
Tlo IsraoI Supromo Courl las impIomonlod
llis approacl consislonlIy in sovoraI judgmonls llal addrossod llo issuo
of onloring IsraoI via llo crossings bolvoon il and llo Gaza Slrip.
139
In
addilionaI judgmonls, llo IsraoI Supromo Courl las gono on lo loId llal
aIllougl llo Gaza Slrip is no Iongor occupiod,
140
il is subjocl lo lloso
provisions in llo Iourll Gonova Convonlion and llo Iirsl AddilionaI
IrolocoI llal rofIocl cuslomary inlornalionaI Iav and appIy onIy vloro
lloro is an inlornalionaI armod confIicl.
141
prg/ns/Io/cIo-ong.aspx#Hamas) and llo Iuropoan Union (lllp://our-Iox.ouropa.ou/
IoxUriSorv/IoxUriSorv.doùri=O}:I:2010:178:0028:0030:IN:IDI).
135 Mi|ii.r A!tcc.ic-Gcncr.|s icsiimcn, supr. nolo 98, al 91.
136 |!., al 75-76.
137 Soo H.m!.n t. Rums|c|!, 548 U.S. 557 (2006).
138 Soo 1.rgcic! Ki||ing caso, supr. nolo 37, al paras. 18.
139 Soo for oxampIo HC} 201/09, 248/09 P|sici.ns |cr Hum.n Rig|is t. Primc Minisicr (sliII
unpubIislod. }an. 19, 2009) 10, para. 14:
"Tlo normalivo arrangomonls llal govorn llo armod confIicl bolvoon llo Slalo of IsraoI
and llo Hamas organizalion aro compIox. Tloy rovoIvo around llo inlornalionaI Iavs
roIaling lo an inlornalionaI armod confIicl. AdmillodIy, llo cIassificalion of llo armod
confIicl bolvoon llo slalo of IsraoI and llo Hamas organizalion as an inlornalionaI confIicl
raisos sovoraI difficuIlios. Bul in a losl of judgmonls vo lavo rogardod llis confIicl as an
inlornalionaI confIicl."
140 Soo for oxampIo HC} 9132/0 A|-B.ssicuni t. Primc Minisicr (unpubIislod, }an. 30, 2008)
|loroinaflor A|-B.ssicuni casoj, al para. 12.
141 |!., al paras. 12-15.
Tlo Supromo Courl of IsraoI is nol aIono in cIassifying llo confIicl
bolvoon IsraoI and llo Hamas as an inlornalionaI armod confIicl. Various
Unilod Nalions organizalions, lumanilarian organizalions, and luman
riglls organizalions aIso cIassify llo confIicl bolvoon IsraoI and llo Hamas
as an inlornalionaI armod confIicl, aIllougl llo roasons llal Iod llom lo
llis concIusion diffor. Tlis cIassificalion is IargoIy a rosuIl of llo posilion
of lloso organizalions llal llo Gaza Slrip is, ovon loday and dospilo
IsraoIs disongagomonl from llo Gaza Slrip in 2005, a lorrilory occupiod by
IsraoI.
142
No doubl consislonl vill lloir lumanilarian focus, llo approacl
llal IsraoI is an occupying povor vis--vis llo Gaza Slrip oplimizos llo
argumonl llal llo provisions of llo Iourll Gonova Convonlion rogarding
llo proloclion of civiIians in a lorrilory llal is subjocl lo a boIIigoronl
occupalion appIy lo llo popuIalion of Gaza. Sinco an occupalion can onIy
oxisl villin llo conloxl of an inlornalionaI armod confIicl, llo posilion
llal llo Gaza Slrip is subjocl lo an occupalion nocossariIy Ioads lo llo
concIusion llal llo confIicl in llo Gaza Slrip is inlornalionaI in claraclor.
143
42. Hovovor, ovon if llo confIicl in llo Gaza Slrip voro lo bo cIassifiod
as a non-inlornalionaI armod confIicl, il vouId appoar llal llo ruIos of
inlornalionaI lumanilarian Iav rogarding navaI bIockados vouId sliII bo
appIicabIo givon llo docIino of llo doclrino of 'rocognilion of boIIigoroncy,
144

llo incroasing accoplanco by courls and lribunaIs lo appIy inlornalionaI
142 Soo Hum.n Rig|is W.ic|. | Icsi |tcri|ing, .t.i|.o|c .i vvv.lrv.org/on/
roporls/2010/05/13/i-Iosl-ovorylling (2010), al 117.
143 D*&%. E"-1$,"-F 0/, 5-$,&-%$"*-%# 6%H I; L,##"7,&,-$ I99B8%$"*- 276-280
(2009),
Amncsi |nicrn.iicn.|. Occupic! P.|csiini.n 1crriicrics. 1|c Ccn||ici in G.z.. A Bric|ing cn
App|ic.o|c I.u, |ntcsiig.iicns, .n! Acccuni.oi|ii, .t.i|.o|c .i vvv.amnosly.org/on/Iibrary/
assol/MDI15/007/2009/on/4c407b40-o64c-11dd-9917-od717fa5078d/mdo150072009on.
llmI#1 (2009).
Hum.n Rig|is W.ic|. |sr.c|. Discng.gcmcni Wi|| Nci |n! G.z. Occup.iicn, .t.i|.o|c .i
vvv.lrv.org/ongIisl/docs/2004/10/29/isrIpa9577.llm (2004).
|CRC. Dignii Dcnic! in i|c P.|csiini.n 1crriicrics, .t.i|.o|c .i vvv.icrc.org/vob/ong/
siloong0.nsf/llmIaII/paIoslino-roporl-131207 (2007).
Uniic! N.iicns. Rcpcri c| i|c Spcci.| R.ppcricur cn i|c siiu.iicn c| |um.n rig|is in i|c
P.|csiini.n icrriicrics cccupic! sincc 196, .t.i|.o|c .i lllp://daccoss-dds-ny.un.org/doc/
UNDOC/GIN/N10/498/94/IDI/N1049894.pdfÒponIIomonl (2010).
Gis|.. Discng.gc! Occupicrs. 1|c Icg.| Si.ius c| G.z., .t.i|.o|c .i vvv.gisla.org/UsorIiIos/
IiIo/Roporl20for20llo20vobsilo.pdf (2010).
B'TsoIom: IsraoIs ObIigalions According lo InlornalionaI Iav, .t.i|.o|c .i vvv.blsoIom.
org/lobrov/gaza_slrip/israoIs_obIigalions.asp.
Soo |nicrn.iicn.| Hum.nii.ri.n I.u H.n!occ|, supr. nolo 113, al 272:
144 "Tlo Iav of boIIigoronl occupalion appIios in inlornalionaI armod confIicl onIy".
Soo aIso E"-1$,"-F 0/, 5-$,&-%$"*-%# 6%H I; L,##"7,&,-$ I99B8%$"*-, supr. nolo
142, al 33.
Soo 1|c UK M.nu.|, supr. nolo 113, al 382, Soo aIso :B##,-, supr. nolo 132, al 22-23.
lumanilarian Iav lo inlornaI confIicls,
145
llo consonsus llal is dovoIoping
among IogaI oxporls rogarding cuslomary Iav ruIos appIicabIo in non-
inlornalionaI confIicl,
146
and llo difficuIly proviousIy discussod in
cIassifying conlomporary armod confIicls. In Iigll of llo aforosaid, il is
IikoIy lloro viII bo a viIIingnoss on llo parl of courls and ollor bodios
lo rocognizo llal llo ruIos govorning llo imposilion and onforcomonl of
a navaI bIockado aro appIicabIo lo non-inlornalionaI armod confIicls.
147
A
slop in llis diroclion vas lakon in llo San Romo ManuaI, vloro il is slalod
llal aIllougl ils provisions voro inlondod lo appIy mainIy in silualions
of inlornalionaI armod confIicls al soa, llis facl vas nol slalod oxprossIy
in ordor nol lo dolor llo appIicalion of llo manuaIs provisions lo non-
inlornalionaI armod confIicls, insofar as lloy invoIvo navaI varfaro:
"Hovovor, il slouId bo nolod llal aIllougl llo provisions of
llis ManuaI aro primariIy moanl lo appIy lo inlornalionaI armod
confIicl al soa, llis las inlonlionaIIy nol boon oxprossIy indicalod
in paragrapl 1 in ordor nol lo dissuado llo impIomonlalion of
lloso ruIos in non-inlornalionaI armod confIicls invoIving navaI
oporalions."
148
43. In Iigll of llis compIox roaIily and in llo absonco of a gonoraI
consonsus undor inlornalionaI Iav rogarding llo cIassificalion of sucl
confIicls, llo approacl prosonlod by llo MiIilary Advocalo-GonoraI boforo
llo Commission, llal IsraoI is bound by inlornalionaI lumanilarian Iav
rogardIoss of llo cIassificalion of llo confIicl, is an undorslandabIo and
praclicaIIy focusod ono. Il slouId aIso bo nolod llal llo imposilion of
llo navaI bIockado on llo Gaza Slrip is nol llo firsl caso in vlicl IsraoI
las confronlod lloso difficuIlios. Ior oxampIo, vliIo llo inlornalionaI
communily lad difficuIly in cIassifying llo armod confIicl bolvoon IsraoI
and llo HozboIIal organizalion in Iobanon in 2006,
149
llal did nol slop
rocognilion of llo navaI bIockado llal IsraoI imposod during llal confIicl.
44. In viov of llo aforosaid, llo Commission las oxaminod llo
condilions for imposing and onforcing llo navaI bIockado on llo Gaza
Slrip on llo basis of llo assumplion llal llo confIicl bolvoon IsraoI and
145 Soo, for oxampIo, Prcsccuicr t. 1.!ic, supr. nolo 130, al paras. 65-142.
146 :B1$*.%&' 5-$,&-%$"*-%# GB.%-"$%&"%- 6%H (}oan-Mario Honckaorls & Iouiso
DosvaId-Bock ods., 2005).
147 Tlis slouId nol bo inlorprolod in any vay lo suggosl llal llo lisloric doclrino of
boIIigoroncy is appIicabIo or approprialo in llis caso. As las boon nolod, il is a doclrino
vidoIy rocognizod lo lavo faIIon inlo disuso. Iurllor, llo appIicalion of sucl a doclrino
impIios a IovoI of Iogilimacy llal slouId nol bo appIiod lo a rocognizod lorrorisl onlily.
148 Soo S.n Rcmc |xp|.n.iicn, supr. nolo 110, al 73.
149 =*%. 6B4,##F YW$&%$,&&"$*&"%# <1, *; \*&9, 27%"-1$ =*-NA$%$, 29$*&1 250-
254 (2010).
Hamas is inlornalionaI in claraclor. Hovovor, il slouId bo nolod llal
givon llo dogroo of !c |.cic conlroI llal llo Hamas oxorcisos ovor llo
Gaza Slrip, llo significanl socurily llroal llal il prosonls, and ils allompls
lo imporl voapons, ammunilion and ollor miIilary suppIios, inicr .|i.,
by soa, llo Commission vouId lavo considorod appIying llo ruIos
govorning llo imposilion and onforcomonl of a navaI bIockado ovon if llo
confIicl bolvoon IsraoI and llo Gaza Slrip lad boon cIassifiod as a non-
inlornalionaI armod confIicl.
Is the Gaza 5trip an nccupied territnry?
45. In A|-B.ssicuni t. Primc Minisicr, llo Supromo Courl of IsraoI
loId llal sinco llo disongagomonl in 2005, IsraoI doos nol lavo 'offoclivo
conlroI ovor llo Gaza Slrip. Bocauso of llo imporlanco of llis concIusion,
llo acluaI vording of llo Supromo Courl is cilod boIov:
'. sinco Soplombor 2005 IsraoI no Iongor las offoclivo conlroI
ovor vlal lappons in llo Gaza Slrip. MiIilary ruIo llal appIiod
in llo pasl in llis lorrilory camo lo an ond by a docision of llo
govornmonl, and IsraoIi soIdiors aro no Iongor slalionod in llo
lorrilory on a pormanonl basis, nor aro lloy in clargo of vlal
lappons lloro. In lloso circumslancos, llo Slalo of IsraoI doos
nol lavo a gonoraI duly lo onsuro llo voIfaro of llo rosidonls
of llo Gaza Slrip or lo mainlain pubIic ordor in llo Gaza Slrip
according lo llo Iavs of boIIigoronl occupalion in inlornalionaI
Iav. Noillor doos IsraoI lavo any offoclivo capabiIily, in ils
prosonl posilion, of onforcing ordor and managing civiIian Iifo
in llo Gaza Slrip.
150

In ils judgmonl, llo Supromo Courl furllor loId llal llo main
obIigalions imposod on llo Slalo of IsraoI vis--vis llo inlabilanls of llo
Gaza Slrip dorivo from llo oxislonco of an armod confIicl bolvoon IsraoI
and llo Hamas organizalion, llo dogroo of conlroI oxorcisod by llo Slalo
of IsraoI ovor llo bordor crossings bolvoon il and llo Gaza Slrip, and llo
roIalionslip of dopondoncy llal vas croalod - al Ioasl in corlain sploros,
sucl as llo oIoclricily suppIy lo llo Gaza Slrip - during llo Iong poriod
of miIilary ruIo in llo Gaza Slrip.
151
Tlo courl aIso loId, in accordanco
vill llo posilion prosonlod by llo Slalo, llal IsraoI is subjocl lo llo ruIos
of cuslomary inlornalionaI Iav llal appIy in armod confIicl, incIuding
llo roquiromonl lo pormil llo passago of 'food and basic lumanilarian
suppIios nocossary for llo survivaI of llo civiIian popuIalion.
152
150 A|-B.ssicuni caso, supr. nolo 140, al para. 12.
151 |!.
152 |!., al para. 14.
As proviousIy nolod, nolvillslanding llo Supromo Courl's
loIding, sovoraI organizalions lavo adoplod llo posilion llal dospilo llo
disongagomonl, llo Gaza Slrip conlinuos lo bo undor IsraoIi occupalion.
Tlis posilion is mainIy basod on llo cIaim llal aIllougl IsraoI no Iongor
las a pormanonl miIilary prosonco in llo Gaza slrip, IsraoIs conlroI of
sovoraI aroas llal offocl llo fabric of Iifo in llo Gaza Slrip amounl lo
'offoclivo conlroI of llo Gaza Slrip. Ior oxampIo, llo organizalion Gisla -
IogaI Conlor for Iroodom of Movomonl prosonlod boforo llo Commission
ils posilion llal IsraoI offoclivoIy conlinuos lo conlroI llo Gaza Slrip for
six roasons: (i) IsraoI conlroIs movomonl lo and from llo Gaza Slrip via
Iand crossings, (ii) IsraoI oxorcisos compIolo conlroI ovor Gaza's airspaco
and lorriloriaI valors, (iii) IsraoI conlroIs movomonl villin Gaza llrougl
poriodic incursions and a "no-go zono", (iv) IsraoI conlroIs llo IaIoslinian
popuIalion rogislry, (v) IsraoI oxorcisos conlroI ovor Gaza's lax syslom and
fiscaI poIicy, (vi) IsraoI oxorcisos conlroI ovor llo IaIoslinian Aullorily
and ils abiIily lo provido sorvicos lo Gaza rosidonls.
153
A simiIar posilion
vas aIso prosonlod by llo roprosonlalivos of llo BTsoIom organizalion in
lloir loslimony boforo llo Commission.
154
46. Indood, acadomics lavo divorging opinions as lo vlollor IsraoI
las 'offoclivo conlroI ovor llo Gaza Slrip.
155
CorlainIy, llo adoplion of
llo posilion llal IsraoI conlinuos lo bo an occupying povor in llo Gaza
slrip roquiros an unjuslifiabIy fIoxibIo and novoI inlorprolalion of llo
lorm 'offoclivo conlroI. In ollor vords, llis inlorprolalion vouId lavo lo
bo basod on llo undorslanding llal lvo difforonl opposing povors can
oxorciso 'offoclivo conlroI in a lorrilory al llo samo limo: llo Hamas and
IsraoI. Moroovor, llo inlorprolalion of llo lorm 'offoclivo conlroI noods lo
bo assossod againsl llo curronlIy accoplod approacl in inlornalionaI Iav
llal 'occupalion doos nol moroIy roquiro miIilary forcos lo bo slalionod
153 Discng.gc! Occupicrs, supr. nolo 142.
154 Transcripl of sossion no. 12 "Toslimony of mombor of llo B'TsoIom organizalion" (}ossica
MonloI & IyaI Haroovony) (Ocl. 13, 2010), al 2:
"Tloro is a dispulo rogarding llo quoslion of vlollor Gaza is sliII subjocl lo IsraoIi
occupalion. Tloro is no doubl llal IsraoI doos nol curronlIy lavo offoclivo conlroI in aII
aspocls of Iifo in llo Gaza Slrip, bul il las sucl conlroI in a fov vory conlraI aroas, in llo
air spaco, llo marilimo spaco, llo popuIalion rogislry, llo onlry and oxil of poopIo and of
cargo".
155 Ior oxampIos of llo viovpoinls of somo Ioading IsraoIi scloIars, soo E"-1$,"-F
L,##"7,&,-$ I99B8%$"*-, supr. nolo 142, al 12-30 (roacling llo concIusion llal IsraoI
conlinuos lo bo an occupying forco), YuvaI Slany, I.r.u., Sc C|csc. 1|c Icg.| Si.ius c| G.z.
A|icr |sr.c|s Discng.gcmcni 8 Y. B. 5-$?#@ GB.@ 6%H 369 (2005) (roacling llo concIusion
llal llo disongagomonl IIan Iod lo llo lransfor of offoclivo conlroI of llo onliro Gaza Slrip
lo llo IaIoslinian Aullorily).
in a corlain lorrilory, bul aIso llal llo occupying povor porforms llo
funclions of an oxisling govornmonl.
156
Indood, during llo Iong poriod llal IsraoI lad llo Gaza Slrip undor
offoclivo conlroI, llo Gaza Slrip did bocomo dopondonl on IsraoI in corlain
sploros. Hovovor, as llo Supromo Courl of IsraoI loId in A|-B.ssicuni
t. Primc Minisicr, llis dopondoncy is insufficionl lo oslabIisl 'offoclivo
conlroI. Il slouId aIso bo slalod, inicr .|i., llal insofar as llo concIusion
llal IsraoI is an occupying povor in llo Gaza Slrip dorivos from IsraoIs
conlroI of llo airspaco of llo Gaza Slrip, lloro is no supporl in inlornalionaI
Iav for llo proposilion llal llo conlroI of airspaco amounls lo 'offoclivo
conlroI.
157
Will rogard lo Iand accoss lo llo Gaza Slrip, il slouId bo nolod
llal llo Gaza Slrip aIso las a bordor crossing vill Igypl (llo Rafal
crossing), ovon llougl Igypl, for ils ovn roasons, aIso oxorcisos conlroI
of llo crossing from ils lorrilory inlo llo Gaza Slrip.
158
SimiIarIy, llo
imposilion of a navaI bIockado doos nol croalo a silualion in vlicl llo
Iavs of occupalion como inlo offocl. Il slouId bo omplasizod llal llo vory
Iack of 'conlroI ovor llo Iand lorrilory in llo Gaza Slrip in llo lradilionaI
sonso of llis lorm is vlal makos an oxlornaI navaI bIockado nocossary lo
conlroI accoss lo and ogross from llal lorrilory. As a comparison, a Iand
siogo doos nol aulomalicaIIy rosuIl in llo bosiogod cily boing loId undor
occupalion. Slalos, and parlicuIarIy lloso llal migll ompIoy navios or
air forcos, oillor uniIaloraIIy or villin llo framovork of a coaIilion, viII
IikoIy bo vary of accopling llo argumonl llal llo moro imposilion of a
navaI bIockado or infIuonco ovor ovonls on llo sloro of a Slalo by llo uso
of miIilary povor aulomalicaIIy croalos a silualion of occupalion.
If IsraoI did indood lavo offoclivo conlroI ovor llo Gaza Slrip, llon il
vouId lavo llo povor lo acl as llo aullorily rosponsibIo for mainlaining
ordor in llo Gaza Slrip. Tlo IsraoIi forcos vouId llon bo abIo lo vail on
llo coasl of llo Gaza Slrip and inlorcopl llo vossoIs lloro. In praclico,
lovovor, IsraoI doos nol conlroI llo coasl of llo Gaza Slrip. Tlis aroa is
undor llo 'offoclivo conlroI of llo Hamas. Tlo Iack of offoclivo conlroI
156 Soo C.sc Ccnccrning Armc! Aciitiiics On 1|c 1crriicr O| 1|c Ccngc, I.C.}., 231(2005) .t.i|.o|c
.i vvv.icj-cji.org/dockol/fiIos/116/10455.pdf (vloro il vas loId llo plysicaI slalioning
of lroops al an airporl and llo oxislonco of adminislralivo conlroI vas nol sufficionl lo
oslabIisl occupalion in llo sonso of arlicIo 42 of llo Haguo RoguIalions).
157 B.n|ctic t. Bc|gium .n! Oi|crs 123 I.I.R. 94 (2001) (vloro NATOs conlroI ovor llo airspaco
of IodoraI RopubIic of YugosIavia during llo 1999 bombing campaign vas rojoclod as a
basis for arguing offoclivo conlroI).
158 Il slouId bo nolod llal al a Ialor slago, vo viII mainlain llal llo facl llal lloro is an
addilionaI bordor crossing bolvoon Igypl and llo Gaza Slrip doos nol diminisl IsraoIs
lumanilarian rosponsibiIily for llo silualion in llo Gaza Slrip. Horo, vo aro doaIing vill a
quoslion of a difforonl naluro, namoIy llo quoslion of "offoclivo conlroI" of llo Gaza Slrip.
ovor llo Gaza Slrip, incIuding llo abiIily lo imposo ordor lloro, and llo
socurily llroal llal llo Hamas prosonls lo llo navaI forcos oporaling
noar llo coasl of llo Gaza Slrip, cIoarIy indicalo llo undorIying Iogic
of inlornalionaI Iav llal pormils llo onforcomonl of a navaI bIockado
al somo dislanco from llo coasl. SimiIarIy, il is difficuIl lo soo lov llo
Gaza silualion diffors in a praclicaI sonso from Iobanon in 2006, vlon
llo bIockading IsraoIi varslip INS H.nii vas lil by a missiIo Iaunclod
by HozboIIal from llo Iobanoso coasl.
159
In Iigll of llo facl llal llo
lorriloriaI valors of llo Gaza Slrip conlain mainIy smaII vossoIs llal aro
capabIo of moving al ligl spoods, IsraoIs navaI forcos aro confronlod
vill a significanl risk.
160
IxampIos sucl as llo allack on llo USS Cc|c in
2000 in Yomon and llo allack on llo Ironcl suporlankor Iimourg in 2002
liglIigll boll llo llroal prosonlod by smaII vossoIs and llo difficuIly in
slopping llom.
161
47. An oxaminalion of llo argumonls, boll individuaIIy and
cumuIalivoIy, lloroforo Ioads lo llo concIusion llal IsraoI doos nol lavo
'offoclivo conlroI in llo Gaza Slrip. Tloroforo, in aIignmonl vill llo
Supromo Courl of IsraoI, llo Commission lakos llo posilion llal IsraoIs
offoclivo conlroI of llo Gaza Slrip ondod vlon llo disongagomonl vas
compIolod in 2005.
IsraeI's impnsitinn nI the navaI bInckade
!"# (75(&6# &* )"# '+-+. /.&%0+1#
48. According lo llo loslimonios boforo llo Commission, llo
Govornmonl of IsraoI imposod llo navaI bIockado on llo Gaza Slrip
on }anuary 3, 2009, for miIilary-socurily roasons, vlicl focusod on
provonling voapons, ammunilion, miIilary suppIios, lorrorisls and
monoy from onloring llo Gaza Slrip, and llo nood lo provonl llo
doparluro of lorrorisls, vossoIs fiIIod vill oxpIosivos and ollor marilimo
borno llroals from Gaza.
162
Tlo various vilnossos omplasizod llo Iargo
amounl of voapons llal can bo smuggIod by soa in ono singIo oporalion
159 Soo :*&3,1.%- ,$ %#@, supr. nolo 91, al 131-135.
160 C|ic| c| Si.||s Opcn Dccr 1csiimcn c| 11.8.2010, supr. nolo 70, al 34-35.
161 Soo Tlad AIIon, Iricn! cr Icc 1cug| ic 1c||, 134 X&*9,,3"-71 !%7%V"-, (2008), .t.i|.o|c
.i vvv.usni.org/magazinos/procoodings/2008-10/friond-or-foo-lougl-loII.
162 C|ic| c| Si.||s Opcn Dccr 1csiimcn c| 11.8.2010, supr. nolo 70, .i 28, Mi|ii.r A!tcc.ic-
Gcncr.|s icsiimcn, supr. nolo 98, al 25, Transcripl of sossion no. 7 "Toslimony of Major-
GonoraI Iilan Dangol, Coordinalor of Govornmonl Aclivilios in llo Torrilorios" (Aug. 31,
2010), al 134 |loroinaflor 1csiimcn c| Gctcrnmcni Aciitii Cccr!in.icr in i|c 1crriicricsj,
Dc|cnsc Minisicrs Opcn Dccr 1csiimcn, supr. nolo 70, al 22.
and lloroforo llo dangor llal llis roulo prosonls.
163
Tlo purposo of llo
navaI bIockado vas, lloroforo, lo roslricl llo miIilary rosourcos avaiIabIo
lo llo Hamas for carrying oul losliIilios againsl IsraoI.
49. A fov officiaIs, incIuding llo MiIilary Advocalo-GonoraI, look
caro in lloir loslimony lo dislinguisl bolvoon llo 'purposo of llo navaI
bIockado and 'IsraoIs bordor crossings poIicy, i.o., llo poIicy roIaling
lo llo Iand bordor crossings vill llo Gaza Slrip llal IsraoI adoplod aflor
Soplombor 19, 2007, vlon llo MinisloriaI NalionaI Socurily Commilloo
docidod lo imposo roslriclions on llo goods onloring llo Gaza Slrip, on
llo movomonl of porsons, and on llo suppIy of oIoclricily and fuoI lo
llo Gaza Slrip, as a rosuIl of Hamass riso lo povor.
164
Tloy omplasizod
in lloir loslimonios llal llo navaI bIockado vas nol imposod lo disrupl
llo commorciaI roIalions of llo Gaza Slrip, for llo roason llal lloro is
no commorciaI porl on llo coasl of llo Gaza Slrip, and lloroforo lloro
las boon no marilimo commorco via llo coasl of llo Gaza Slrip in llo
pasl.
165
As a rosuIl, llo marilimo aclivily in llo Gaza Slrip vas Iimilod lo
fisling, vloroas any sucl commorco vonl via llo IsraoIi porl of Asldod
or llo Igyplian porl of II Arisl.
166
Tlo MiIilary Advocalo-GonoraI
loslifiod boforo llo Commission llal llo IDI vas compoIIod lo find a
suilabIo oporalionaI soIulion for llo marilimo zono in viov of llo incroaso
in llo plonomonon of fIoliIIas bound for llo Gaza Slrip.
167
Tlo MiIilary
Advocalo-GonoraI furllor cIarifiod llal llo possibiIily of imposing a navaI
bIockado, spocificaIIy, aroso in discussions loId by llo IDI vill rogard
lo llo approprialo mollods of conlonding vill llo plonomonon of llo
fIoliIIas. A navaI bIockado vas rogardod as llo bosl oporalionaI mollod of
doaIing vill llo plonomonon
168
bocauso ollor soIulions, sucl as llo uso
of llo rigll of visil and soarcl, voro provod lo bo probIomalic and ollor
sourcos of aullorily voro rogardod as voakor.
Tlis can aIso bo soon from vrillon maloriaI llal vas submillod lo llo
Commission, vlicl incIudos IogaI opinions, summarios of moolings, and
Iollors llal voro vrillon during llo poriod llal procodod llo imposilion
163 |sr.c|s Aciicns ic Prctcni i|c Arrit.| c| Vcssc|s ic G.z.s S|crc 8 (Opinion of IoIilicaI-
Socurily Brancl, Aug. 3, 2010) |loroinaflor Opinicn c| Pc|iiic.|-Sccurii Br.nc|j, soo aIso
Primc Minisicrs Opcn Dccr 1csiimcn, supr. nolo 82, al 7, Dc|cnsc Minisicrs Opcn Dccr
1csiimcn, supr. nolo 70, al 8, C|ic| c| Si.||s Opcn Dccr 1csiimcn c| 11.8.2010, supr. nolo 70,
al 6-7.
164 Mi|ii.r A!tcc.ic-Gcncr.|s icsiimcn, supr. nolo 98, al 25, 1csiimcn c| Gctcrnmcni Aciitii
Cccr!in.icr in i|c 1crriicrics, supr. nolo 162, al 134.
166 |!.
167 Mi|ii.r A!tcc.ic-Gcncr.|s icsiimcn, supr. nolo 98, al 14-17.
168 |!.
of llo navaI bIockado. Tlus, for oxampIo, aIroady on Augusl 3, 2008,
llo IogaI advisor of llo IsraoIi Navy vrolo an opinion doaIing vill llo
povors of llo Navy lo slop foroign vossoIs off llo coasl of llo Gaza Slrip.
Tlo opinion, vlicl vas vrillon in llo conloxl of oporalionaI dopIoymonl
of llo Navy prior lo llo arrivaI of a fIoliIIa vill lvo yaclls fIying Grook
fIags, survoyod in groal dolaiI llo appIicabIo Iav and llo various possibIo
aclions opon lo llo Navy, vliIo monlioning llo Iimilalions facod by llo
Navy. In lor 'Rocommondalions for furllor lroalmonl, slo vrolo: 'As
slalod, in llo curronl socurily. in ordor llal llo IDI slouId lavo llo
povors roquirod lo doaI vill slips roacling llo Gaza Slrip, I rocommond
considoring a navaI bIockado on llo Gaza Slrip (vill an officiaI
announcomonl), vlicl viII roslricl llo onlry of foroign slipping vossoIs
inlo llo Gaza Slrip.
169
An opinion vill a simiIar concIusion vas givon
by llo InlornalionaI Iav Doparlmonl al llo loadquarlors of llo MiIilary
Advocalo-GonoraIs Offico on Augusl 6, 2008.
170
On Augusl 11, 2008,
llo MiIilary Advocalo-GonoraI approaclod llo Allornoy-GonoraI and
brougll lo lis allonlion llo rocommondalion of llo MiIilary Advocalo-
GonoraIs Offico as voII as various IogaI disagroomonls llal aroso in
llis rogard vill llo IogaI advisor of llo socurily oslabIislmonl, llo
IogaI advisor of llo Minislry of Ioroign Affairs and llo IogaI advisor of
llo IsraoI IoIico. Tlo MiIilary Advocalo-GonoraI aIso roquoslod loIding
a mooling on llo subjocl, vill llo parlicipalion of aII of llo roIovanl
parlios, in ordor lo formuIalo a sollIod IogaI posilion.
171
On llo samo day
llo MiIilary Advocalo-GonoraI apprisod llo Cliof of Slaff in vriling
llal lo lad spokon vill llo Allornoy-GonoraI, vlo aIso oxprossod
llo posilion llal llo docIaralion of a navaI bIockado on llo Gaza Slrip
gavo llo 'oplimaI IogaI-oporalionaI soIulion lo provonling llo onlry of
foroign slipping vossoIs inlo llo Gaza Slrip, and gavo llo Navy aII of llo
looIs and povors roquirod lo provonl llo passago of slipping vossoIs.
Tlo sourcos of aullorily llal aIIov aclion lo bo lakon againsl slipping
vossoIs, in llo absonco of a docIaralion of a navaI bIockado, aro voakor,
and lloir praclicabiIily is doublfuI.
172
Irom llo maloriaIs submillod lo
169 Soo "llo Navys aullorilios rogarding foroign slips off llo sloro of llo Gaza Slrip"
(opinion by llo navys IogaI advisor, 3.8.2008) MAG pcsiiicn p.pcr - Appcn!ix, supr. nolo 77.
170 Soo "llo Navys aullorilios rogarding foroign slips off llo sloro of llo Gaza Slrip" (opinion
by llo Cliof MiIilary Advocalo GonoraI - Doparlmonl of InlornalionaI Iav, 6.8.2008) MAG
pcsiiicn p.pcr - Appcn!ix, supr. nolo 77.
171 Soo Iollor from Brigadior GonoraI Aviclai MandoIbIil, llo MiIilary Advocalo GonoraI, lo
Yoluda Woinsloin, Allornoy GonoraI (11.8.2008) MAG pcsiiicn p.pcr - Appcn!ix, supr. nolo
77.
172 Soo firsl Iollor from Brigadior GonoraI Aviclai MandoIbIil, llo MiIilary Advocalo GonoraI,
lo Iioulonanl GonoraI Gabi Aslkonazi, IDI Cliof of Slaff (11.8.2008) MAG pcsiiicn p.pcr -
Appcn!ix, supr. nolo 77.
llo Commission, il appoars llal llo Allornoy-GonoraI agrood on llo
vloIo bul llougll llal llo issuo roquirod a praclicaI soIulion villin llo
aullorily of llo poIilicaI ocloIon and rocommondod loIding a discussion
al llal IovoI.
173

On Docombor 29, 2008, llo MiIilary Advocalo-GonoraI onco again
approaclod llo Navy Commandor vlon, in llo silualion assossmonls
llal look pIaco during Oporalion 'Casl Ioad, llo quoslion of lov lo
doaI vill civiIian slipping vossoIs llal migll lry lo roacl llo coasl of llo
Gaza Slrip aroso onco again. In lis Iollor, llo MiIilary Advocalo-GonoraI
said llal 'in viov of llo inlonsivo combal oporalions laking pIaco al llis
limo in llo Gaza Slrip (i.o., Oporalion 'Casl Ioad), lo llougll il rigll lo
rocommond onco again llo imposilion of a navaI bIockado on llo Gaza
Slrip, ovon llougl no docision lad yol boon mado on llis issuo.
174
On
Docombor 30, 2008, llo MiIilary Advocalo-GonoraI onco again conlaclod
llo Cliof of Slaff and said llal in llo oarIy lours of llo morning llo Navy
forcos voro roquirod lo conlond vill llo yacll Dignii llal Iofl Cyprus
for llo Gaza Slrip and llal llo incidonl liglIigllod llo IogaI difficuIly of
doaIing vill foroign civiIian slipping vossoIs lrying lo roacl llo coasl
of llo Gaza Slrip. Ho onco again askod llo Cliof of Slaff lo bring lis
rocommondalion of a navaI bIockado boforo llo poIilicaI ocloIon.
175
Irom a momorandum of llo Minislor of Dofonso il vouId appoar
llal on Docombor 30, 2008, a roquosl vas rocoivod from llo Irimo
Minislors miIilary socrolary lo acl lo imposo a navaI bIockado, and llal
on Docombor 31, 2008, a roquosl vas rocoivod by lis miIilary allacl
from llo Cliof of Slaffs offico in llis rogard. On }anuary 3, 2009, aflor llo
socurily oslabIislmonls IogaI advisor gavo lis opinion on llo subjocl, llo
Minislor of Dofonso signod an ordor lo imposo llo bIockado.
176
50. Il slouId bo nolod llal, llo Ioador of llo opposilion - vlo vas
Minislor of Ioroign Affairs al llo limo of imposing llo navaI bIockado on
llo Gaza Slrip, MK Tzipi Iivni, said in lor loslimony llal llo imposilion
of llo navaI bIockado, ovon llougl il vas nol dono in ordor lo disrupl llo
173 Soo socond Iollor from Brigadior GonoraI Aviclai MandoIbIil, llo MiIilary Advocalo
GonoraI, lo Iioulonanl GonoraI Gabi Aslkonazi, IDI Cliof of Slaff (11.8.2008) MAG
pcsiiicn p.pcr - Appcn!ix, supr. nolo 77.
174 Soo Iollor from Brigadior GonoraI Aviclai MandoIbIil, llo MiIilary Advocalo GonoraI,
lo Major GonoraI IIi Marom, Commandor of llo Navy (29.12.2008) MAG pcsiiicn p.pcr -
175 Soo Iollor from Brigadior GonoraI Aviclai MandoIbIil, llo MiIilary Advocalo GonoraI, lo
Iioulonanl GonoraI Gabi Aslkonazi, IDI Cliof of Slaff (30.12.2009) MAG pcsiiicn p.pcr -
176 Soo Dofonso Minislors Momorandum, 21 (30.8.2010), markod by llo Commission as
oxlibil 53 |loroinaflor Dc|cnsc Minisicrs Mcmcr.n!umj.
commorciaI roIalions of llo Gaza Slrip, vas dono in a vidor conloxl, as
parl of IsraoIs comprolonsivo slralogy (vlicl slo roforrod lo as a 'duaI
slralogy) of doIogilimizing Hamas on llo ono land and slronglloning
llo slalus of llo IaIoslinian Aullorily vis--vis llo Gaza Slrip on llo
ollor. Iursuanl lo llis slralogy, IsraoI doos nol rocognizo Hamas, yol il
conlinuos lo acl and uploId, insofar as possibIo, llo inlorim agroomonls
vill llo IaIoslinian Aullorily. According lo lor approacl, llo broad
conloxl is nol moroIy llo var on lorror, bul aIso llo poIilicaI abiIily lo
roacl agroomonls bolvoon IsraoI and llo IaIoslinian Aullorily sinco
llo allompls lo lransfor goods lo llo Gaza Slrip by soa (dospilo IsraoIs
offor lo lransfor lumanilarian suppIios lo llo Gaza Slrip via llo Iand
crossings) is conlrary lo llo arrangomonls dolorminod in llo inlorim
agroomonls (according lo vlicl IsraoI viII rolain conlroI of llo lorriloriaI
valors of llo Gaza Slrip unliI llo finaI arrangomonl is roaclod) and il
aIso givos Iogilimacy lo llo Hamas rogimo in llo Gaza Slrip, and larms
llo abiIily lo roacl fuluro agroomonls bolvoon IsraoI and llo IaIoslinian
Aullorily.
177
MK Iivni aIso slalod llal il vouId bo a mislako lo oxamino
llo circumslancos of imposing llo navaI bIockado from a narrov socurily
porspoclivo onIy.
178
SimiIarIy, in a documonl dalod Augusl 3, 2010, Major-GonoraI
(ros.) Amos GiIad, llo load of llo IoIilicaI, MiIilary and IoIicy Affairs
Buroau al llo Minislry of Dofonso gavo dolaiIs of llo socurily and poIilicaI
roasons llal Iod lo imposing llo navaI bIockado on llo Gaza Slrip. Tlo
documonl conlains lvo considoralions: ono, vlicl is monlionod as llo
main considoralion, is lo provonl any miIilary slronglloning of llo Hamas,
llo ollor, vlicl is monlionod aIongsido llo socurily considoralion, is lo
'isoIalo and voakon Hamas. In llis conloxl, Major-GonoraI (ros.) GiIad
slalod llal llo significanco of oponing a marilimo roulo lo llo Gaza Slrip
vas llal llo Hamas slalus vouId bo slrongllonod significanlIy from
oconomic and poIilicaI viovpoinls. Ho furllor slalod llal oponing a
marilimo roulo lo llo Gaza Slrip, parlicuIarIy vliIo il is undor Hamas
conlroI, rallor llan villin llo framovork of a poIilicaI agroomonl
bolvoon IsraoI and llo IaIoslinians, vouId bo lanlamounl of 'a vory
significanl acliovomonl for Hamas and llo pall of rosislanco in llo
inlornaI arona, al llo oxponso of Abu Mazons govornmonl and llo pall
of agroomonls.
179
Major-GonoraI (ros.) GiIad concIudod:
177 Transcripl of sossion no. 14 "Ioador of llo Opposilion Tzipi Iivnis opon door loslimony"
2-3 (Ocl. 25, 2010) |loroinaflor Ic.!cr c| i|c Oppcsiiicn 1zipi Iitnis cpcn !ccr icsiimcnj.
178 Soo |!., al 3: "Tlo narrov socurily viov, vlicl is corrocl for sucl a body, in my viov doos
somovlal of a dissorvico in llo broador mallor basod upon vlicl IsraoI couId basicaIIy
bo granlod Iogilimacy for aclions vlicl aro socurily aclions".
179 Opinicn c| Pc|iiic.|-Sccurii Br.nc|, supr. nolo 163, al 9, paras. 49-52.
'In summary, llo nood lo imposo a navaI bIockado on llo
Gaza Slrip arisos from socurily and miIilary considoralions of
groal voigll, vlicl aro mainIy llo nood lo provonl a miIilary
slronglloning of lorrorisls in llo Gaza Slrip, llo onlry of lorrorisls
and llo smuggIing of voapons inlo llo Gaza Slrip by soa, and
aIso lo provonl any Iogilimizalion and oconomic and poIilicaI
slronglloning of Hamas and slronglloning il in llo inlornaI
IaIoslinian arona.
180
Il vouId lloroforo appoar llal ovon llougl llo purposo of llo navaI
bIockado vas fundamonlaIIy a socurily ono in rosponso lo miIilary noods,
ils imposilion vas aIso rogardod by llo docision makors as Iogilimalo
villin llo concopl of IsraoIs comprolonsivo 'duaI slralogy againsl llo
Hamas in llo Gaza Slrip.
<.)#5'+)3-#6 )& )"# '+-+. /.&%0+1#
51. Irom llo maloriaI llal vas submillod lo llo Commission, il is
ovidonl llal IsraoI - ovon llougl il vas nol obIigod lo do so undor llo ruIos
of inlornalionaI Iav - imposod llo navaI bIockado onIy aflor ollor oplions
voro considorod. Tloso incIudod slopping and soarcling slipping vossoIs
vill consonl, docIaring a 'marilimo zono, and oxorcising llo aullorily
of 'visil and soarcl. During an armod confIicl, il is IavfuI lo imposo a
navaI bIockado, villoul considoring aIlornalivos, as Iong as llo navaI
bIockado ilsoIf salisfios llo roquiromonls of inlornalionaI lumanilarian
Iav. Rallor, llo anaIysis of llo oplions domonslralos llo dogroo lo vlicl
IsraoI carofuIIy considorod llo docision lo imposo a bIockado.
52. 1|c pcucr ic sicp .n! sc.rc| s|ips uii| ccnscni. According lo llo
principIo of llo froodom of llo ligl soas in llo Iav of llo soa, as discussod
abovo, lloro is a vory Iimilod aullorily lo inlorrupl llo voyago of a vossoI
in inlornalionaI valors and carry oul a consonsuaI soarcl. WliIo lloro aro
Slalos llal cIaim llo consonl of llo slips maslor is sufficionl, llo gonoraI
viov appoars lo bo llal llo consonl of llo fIag Slalo is roquirod.
181
In any
ovonl, virluaI corlainly llal consonl for a soarcl vouId nol bo granlod
by llo Maslors of llo slips bonl on roacling Gaza Iimilod llo uliIily of
foIIoving llal oplion. Tlo consonl of llo fIag Slalo providos a slrongor
IogaI basis for carrying oul a soarcl of a vossoI. Hovovor, il vas nol
corlain llal llo consonl of llo fIag Slalo vouId acluaIIy bo oblainod, and,
180 |!., al 9, para. 53.
181 Soo UNCIOS, supr. nolo 97, al arl. 110 (UNCIOS gonoraIIy Iimils llo rigll of a varslip
lo visil a foroign slip lo silualions vloro lloro is grounds for suspocling llal a vossoI is
invoIvod in piracy, sIavo lrado, unaullorizod broadcasling, is villoul nalionaIily or in
facl of llo samo nalionaIily as llo varslip).
in any caso, il is nol possibIo lo onsuro llal llo consonl vouId bo givon in
a limoIy mannor.
53. Dcc|.r.iicn c| . 'm.riiimc zcnc. InlornalionaI lumanilarian Iav
pormils a parly lo a confIicl lo Iimil llo aclivily of a noulraI vossoI
(incIuding laking conlroI of llo communicalions of a noulraI vossoI)
182
in or
cIoso lo an aroa vloro navaI miIilary aclivily is laking pIaco, as voII as llo
oslabIislmonl of marilimo zonos (or 'oxcIusion zonos).
183
Tlo possibiIily
of croaling a 'marilimo zono Iimiling accoss lo llo Gaza slrip by llo aroa
vloro combal aclivily is laking pIaco vas nol moroIy considorod by IsraoI
in lloory, bul vas aIso impIomonlod in praclico.
184
As slalod abovo (para.
25) on Augusl 13, 2008, a NOTMAR vas pubIislod, caIIing for aII foroign
vossoIs in llo aroa nol lo onlor llo marilimo zono adjaconl lo llo Gaza Slrip.
Tlo NOTMAR aIso slalod llal lumanilarian aid vouId bo lransforrod lo
llo Gaza Slrip via llo oxisling Iand crossings. Hovovor, lloro is a Iack of
cIarily in llo Iav as lo vlollor sucl a zono providos an aullorily lo onIy
soarcl for conlraband. Nolvillslanding llis NOTMAR, fIoliIIas vloso
docIarod doslinalion vas llo Gaza Slrip conlinuod lo arrivo. In llo poriod
bolvoon llo monlls of Augusl-Docombor 2008, llo Govornmonl of IsraoI
ovon pormillod six vossoIs lo onlor llo Gaza Slrip. Tlo incroasing inlorosl
in oponing a marilimo roulo lo llo Gaza Slrip arousod gravo concorn in
llo socurily oslabIislmonl llal a pormanonl 'marilimo lraffic roulo lo
llo Gaza Slrip vouId bo croalod, sinco il couId bo abusod for smuggIing
miIilary suppIios and lorrorisls.
185
54. Rig|i c| tisii .n! sc.rc|. Anollor oplion considorod by IsraoIi
aullorilios vas llo oxorciso of llo rigll of visil and soarcl. As indicalod
in llo U.S. Navy Commandors Handbook, llo Iav of noulraIily - a parl
of llo Iav of armod confIicls llal dofinos llo riglls of parlios llal aro
nol invoIvod in llo armod confIicl - doos nol prolibil commorco bolvoon
a noulraI Slalo and a parly lo an armod confIicl. Hovovor, a noulraI
govornmonl cannol ilsoIf suppIy var maloriaIs villoul il boing rogardod
as a broacl of noulraIily. Moroovor, a noulraI govornmonl 'may forbid
ils cilizons from carrying on non-noulraI commorco vill boIIigoronl
nalions,
186
bul il is nol roquirod lo do so.
182 Soo U.S. N.t, 1|c Ccmm.n!crs H.n!occ|, supr. nolo 92, al 7-11, para. 7.8, Soo aIso S.n
Rcmc M.nu.|, supr. nolo 110, al ruIo 108.
183 Soo U.S. N.t, 1|c Ccmm.n!crs H.n!occ|, supr. nolo 92, al 7-12, para 7.9, Soo aIso S.n
Rcmc M.nu.|, supr. nolo 110, al ruIo 105.
184 S.n Rcmc M.nu.|, supr. nolo 110, al ruIo 119.
185 MAG pcsiiicn p.pcr, supr. nolo 1, al 39.
186 Soo U.S. N.t, 1|c Ccmm.n!crs H.n!occ|, supr. nolo 92, al para. 7.4.
In ordor lo onsuro llal cargo llal is suppIiod lo a parly lo a confIicl
doos nol broacl llo ruIos of noulraIily, llo Iavs of navaI varfaro granl
'a rigll lo visil and soarcl morclanl vossoIs oulsido noulraI valors
vloro lloro aro roasonabIo grounds for suspocling llal lloy aro subjocl
lo capluro.
187
An accoplod dofinilion of llo concopl is found in llo U.S.
Navy Commandors Handbook:
'Visil and soarcl is llo moans by vlicl a boIIigoronl varslip
or boIIigoronl miIilary aircrafl may dolormino llo lruo claraclor
(onomy or noulraI) of morclanl slips oncounlorod oulsido
noulraI lorrilory, llo naluro (conlraband
188
or oxompl froo
goods) of lloir cargo, llo mannor (innoconl or losliIo) of lloir
ompIoymonl, and ollor facls boaring on lloir roIalion lo llo
armod confIicl.
189
Hovovor, a koy roquiromonl is llal sucl a rigll cannol bo arbilrariIy
oxorcisod. Tlo claIIongo llal confronlod llo IsraoIi aullorilios vas lo
oblain sufficionl informalion rogarding llo cargo and/or porsonnoI on
board llo vossoIs in ordor lo find a ground for suspicion llal llo vossoI
is ongagod in lransporling conlraband, onomy combalanls, is prosonling
frauduIonl documonlalion, is conlribuling lo llo onomys miIilary aclivily,
and simiIar aclions.
190
In addilion, oxorcising llo rigll of visil and soarcl
al soa can bo a compIox procoss in viov of llo sizo of morclanl vossoIs,
praclicaI difficuIlios llal lavo arison vill rogard lo soarcling llo cargo
on vossoIs, llo voallor, Iimilod navaI rosourcos and llo nood lo carry oul
ollor oporalions.
55. Nono of llo aIlornalivos discussod abovo providod llo moans
lo comprolonsivoIy provonl llo imporl of arms, ammunilion, and var
maloriaIs. Moroovor, lloso aIlornalivos did nol provido aullorily lo slop
lorrorisls and vossoIs from Ioaving Gaza. Horo il slouId bo rocaIIod llal llo
Hamas las provon limo and again ils inlonlion lo camoufIago ils aclivily
bolind a civiIian cIoak. Tloroforo, il is Iogilimalo for IsraoI lo carofuIIy
scrulinizo ovory aclion of llo Hamas in ordor lo dolormino vlollor il
conslilulos a llroal lo IsraoI's armod forcos or ils cilizons. Imposing a
navaI bIockado is lloroforo llo onIy moasuro llal givos aullorily undor
inlornalionaI lumanilarian Iav lo provonl llo doparluro of vossoIs from
llo aroa vloro llo navaI bIockado las boon docIarod. Il slouId aIso bo
poinlod oul llal imposing a navaI bIockado is llo mollod of varfaro llal
187 Soo S.n Rcmc M.nu.|, supr. nolo 110, al ruIo 118.
188 Soo S.n Rcmc M.nu.|, supr. nolo 110, al ruIo 148 (dofining conlraband as "goods vlicl
aro uIlimaloIy doslinod for lorrilory undor llo conlroI of llo onomy and vlicl may bo
suscoplibIo for uso in armod confIicl").
189 Soo U.S. N.t, 1|c Ccmm.n!crs H.n!occ|, supr. nolo 92, al para. 7.6.
190 Soo S.n Rcmc M.nu.|, supr. nolo 110, al ruIo 146.
inlorforos llo Ioasl vill noulraI slipping, al Ioasl in principIo, mainIy for
llo roason llal llis mollod of varfaro is roslriclod goograplicaIIy lo llo
spocific aroa llal is subjocl lo llo navaI bIockado, unIiko llo rigll of visil
and soarcl vlicl can bo oxorcisod anyvloro, oxcopl in llo lorriloriaI
valors of a noulraI Slalo.
191

Givon llo aforosaid, IsraoI uIlimaloIy docidod llal imposing a navaI
bIockado providod llo mosl officionl and comprolonsivo IogaI looI lo
confronl llo provaiIing socurily llroal, vlicl, as slalod abovo, conslilulos
a Iogilimalo mollod of varfaro.
IsraeI's CnmpIiance with the LegaI RuIes Gnverning a
NavaI BInckade
=&883)8#') )& )"# 57.#6 &* 3')#5'+)3&'+. .+9
56. Tlo anaIysis viII nov lurn lo llo quoslion of vlollor IsraoI
compIiod vill llo condilions roquirod for llo imposilion and onforcomonl
of a navaI bIockado. Tlo maloriaI boforo llo Commission cIoarIy slovs llal
aII of llo organs of llo Slalo of IsraoI (llo Govornmonl, llo IDI, llo MiIilary
Advocalo-GonoraI, llo Minislry of Ioroign Affairs and llo Allornoy-
GonoraI) mado groal offorls in ordor lo compIy vill llo loclnicaI IogaI
ruIos govorning llo imposilion of a navaI bIockado. Tlo Govornmonl of
IsraoI consuIlod miIilary and civiIian IogaI oxporls rogarding aII aspocls of
llo comprolonsivo pIanning. Irom llo firsl discussion of vlollor a navaI
bIockado vas lo bo inlroducod, il appoars llal lloro vas a commilmonl
lo lvo principIos: firsl, llo bIockado vouId bo imposod pursuanl lo llo
ruIos of inlornalionaI Iav, i.o., IsraoI commillod ilsoIf lo foIIov llo vidoIy
accoplod IogaI Iimilalions of a lradilionaI bIockado as rofIoclod in llo S.n
Rcmc M.nu.|. Socond, llo bIockado vouId bo imposod subjocl lo IsraoIs
IogaI obIigalions rogarding provision of lumanilarian assislanco.
57. As slalod abovo, llo loclnicaI IogaI roquiromonls for imposing
a navaI bIockado can bo found, inicr .|i., in arlicIos 93-101 of llo San
Romo ManuaI.
192
Tlo ovidonco boforo llo Commission slovs llal IsraoI
compIiod vill llo condilions rogarding llo offoclivonoss of llo bIockado,
193

191 |!.
192 S.n Rcmc M.nu.|, supr. nolo 110, al ruIo 93-101, Soo aIso Hcinisc|c| tcn Hcincgg, |P|I, supr.
nolo 91, al paras. 28-40.
193 S.n Rcmc M.nu.|, supr. nolo 110, al ruIo 95, Hcinisc|c| tcn Hcincgg, |P|I, supr. nolo 91, al
paras. 33-37 (as far as is knovn, llo bIockado las provonlod aII slips from accossing llo
coasl of llo Gaza Slrip sinco llo limo of ils oslabIislmonl).
imparliaIily in imposing il
194
and non-inlorforonco vill porls and coasls
of noulraI Slalos.
195
Ono aspocl of llo loclnicaI compIianco vill llo Iav
govorning bIockados llal varranl commonl is llo duly lo givo nolico of
llo imposilion of a bIockado, and ospociaIIy llo duly lo givo nolico of llo
'duralion of llo navaI bIockado.
!"#$%&'( #* $+' %,-#.%$%#/ 0/1 1230$%#/ #* 0 /0405 65#&701'
58. Tlo roquiromonl of giving nolico of a navaI bIockado appoars,
inicr .|i., in arlicIos 93-94 of llo San Romo ManuaI. AIllougl llo Iondon
DocIaralion of 1909 providos llal nolico of llo imposilion of a navaI
bIockado slouId bo givon lo noulraI Slalos by sonding mossagos lo lloir
govornmonls, loday llo accoplod opinion is llal pubIisling a 'Nolico
lo Airmon and a 'Nolico lo Marinors salisfios llo roquiromonl of llo
arlicIo.
196
Tlo Commonlary lo llo San Romo ManuaI is of no assislanco in
llis rogard, sinco il moroIy slalos llal arlicIo 94 of llo San Romo ManuaI
is 'soIf-oxpIanalory.
197
In llo caso al land, llo Slalo of IsraoI look llo foIIoving slops in
ordor lo givo nolico of llo navaI bIockado: from llo loslimony of llo
MiIilary Advocalo-GonoraI, Major-GonoraI Aviclai MondoIbIil, il can bo
soon llal llo MiIilary Advocalo-GonoraIs Offico askod llo Minislry of
Transporl lo lransmil informalion rogarding llo imposilion of llo navaI
bIockado by aII mollods al ils disposaI, in ordor lo onsuro llal llo nolico
vouId roacl aII vossoIs in llo Modilorranoan Soa. Tlis vas aIso dono. Tlo
nolico vas aIso pubIislod on llo Inlornol silos of llo IDI, llo Slipping
Aullorily, llo MiIilary Advocalo-GonoraI, and llo Minislry of Transporl,
and, as nolod abovo, via sovoraI inlornalionaI clannoIs. Tlo announcomonl
vas aIso lransmillod lvico a day via llo omorgoncy clannoI for marilimo
communicalion lo aII slips villin a dislanco of up lo 300 kiIomolors from
llo IsraoIi coasl.
198
In addilion, nolicos voro aIso sonl lo llo fIag Slalos
194 S.n Rcmc M.nu.|, supr. nolo 110, al ruIo 100, Soo aIso Hcinisc|c| tcn Hcincgg, |P|I, supr.
nolo 91, al para. 40 (il appoars llal IsraoI las nol aullorizod any vossoI lo accoss llo
coasl of llo Gaza Slrip sinco llo oslabIislmonl of llo bIockado, as a rosuIl, IsraoI las nol
discriminalod bolvoon vossoIs of difforonl nalionaIilios vlon onforcing llo bIockado).
195 S.n Rcmc M.nu.|, supr. nolo 110, al ruIo 99, Soo aIso Hcinisc|c| tcn Hcincgg, |P|I, supr.
nolo 91, al para. 38 (lloro is no ovidonco llal llo bIockado inlorforos vill any porls or
coasls oulsido llo Gaza Slrip).
196 Soo Hcinisc|c| tcn Hcincgg, |P|I, supr. nolo 91, al para. 31.
197 S.n Rcmc |xp|.n.iicn, supr. nolo 110, al 177, para. 94.1.
198 Dc|cnsc Minisicrs Opcn Dccr 1csiimcn, supr. nolo 70, al 29-30, Mi|ii.r A!tcc.ic-Gcncr.|s
icsiimcn, supr. nolo 98, al 74.
and llo Slalos llal IsraoI knov inlondod lo sond slips lo llo aroa.
199
Tloso
slops cIoarIy salisfy llo roquiromonl of 'nolico.
59. An issuo llal roquiros considoralion in llis conloxl is vlollor
IsraoI compIiod vill llo condilion llal nolico slouId bo givon of llo
'duralion of llo navaI bIockado. Tlo NOTMAR of }anuary 3, 2009, slalos
llal 'Gaza marilimo aroa is cIosod lo aII marilimo lraffic and is undor
bIockado imposod by llo IsraoIi Navy unliI furllor nolico.
200

Tlo roquiromonl llal llo duralion of llo navaI bIockado (loroaflor:
the duratinn) slouId bo slipuIalod from llo oulsol is slalod in llo San
Romo ManuaI (arlicIo 94),
201
in llo Harvard Air and MissiIo Warfaro
ManuaI (ruIo 148(b)),
202
and in llo UK
203
and Canadian
204
ManuaIs (vlicl
adoplod llo provisions of llo San Romo ManuaI). Il is nol, lovovor,
roquirod by llo 1909 Iondon DocIaralion, nor doos il appoar in llo
U.S. NavaI Commandors Handbook.
205
Tlo MiIilary Advocalo-GonoraI
poinlod lo llo facl llal lloro is a Iack of cIarily vill rogard lo llo accoplod
norm in cuslomary inlornalionaI Iav in llis conloxl. As slalod abovo, llo
Commonlary on llo San Romo ManuaI cannol assisl in llo inlorprolivo
procoss.
206
Tlo Commonlary on ruIo 148(b) of llo Harvard Air and MissiIo
Warfaro ManuaI slalos llal llis roquiromonl rofors lo a graco poriod
during vlicl noulraI aircrafl aro aIIovod lo Ioavo llo bIockadod aroa.
207
Roslricling llo bIockado lo a spocific duralion vas rogardod as
impossibIo, in viov of llo opon ondod naluro of llo confIicl vill Hamas.
208

Ivon if vo rogard llo 'duralion as an omorging ruIo of cuslomary
inlornalionaI Iav, groal voigll is nol allaclod lo oslabIisling a spocific
lorm during vlicl llo bIockado is roquirod lo run. Tloroforo, il appoars
llal llo nolico llal llo navaI bIockado vouId conlinuo 'unliI furllor
nolico salisfios llo IogaI roquiromonls. Tlis nolificalion vas aIso incIudod
in llo poriodic nolicos llal voro sonl vill rogard lo llo oxislonco of a
navaI bIockado. Al llo crux of llo nolificalion provisions is llo goaI of
onsuring llal noulraI slips aro avaro of llo oxislonco of a navaI bIockado
199 Dc|cnsc Minisicrs Mcmcr.n!um, supr. nolo 176, al 22.
200 Nolico lo marinors 1/2009 (}an. 6, 2009).
202 1|c Air .n! Missi|c W.r|.rc M.nu.|, supr. nolo 115, al arl. 148(b).
203 Soo 1|c UK M.nu.|, supr. nolo 113, al 363, para. 13.66.
204 1|c C.n.!i.n M.nu.|, supr. nolo 113, al 8-11/8-12, para. 845.
205 Soo U.S. N.t, 1|c Ccmm.n!crs H.n!occ|, supr. nolo 92, al 7-10, para. 7.7.2.2.
207 1|c Air .n! Missi|c W.r|.rc M.nu.|, supr. nolo 115, al 289, arl. 148(b).
208 Dc|cnsc Minisicrs Opcn Dccr 1csiimcn, supr. nolo 70, 3-5.
so llal lloy can avoid onloring llo aroa. In llo caso al land, llo fIoliIIa
organizors' slalod inlonlion vas lo broacl il and onlor llo Gaza Slrip.
209
60. Dospilo llo aforosaid, ono advanlago of slipuIaling a spocific
duralion is llal il vouId onsuro a syslomalic and poriodic roviov of
llo bIockado al llo liglosl ocloIons of llo Govornmonl, in ordor lo
oxamino vlollor lloro las boon a clango in circumslancos and vlollor
llo navaI bIockado conlinuos lo acliovo llo anlicipalod offocl. As nolod,
llo Iack of a spocific duralion of llo bIockado doos nol affocl ils IogaIily,
bul slipuIaling a fixod duralion vouId onsuro llal ils offoclivonoss in
aclioving llo Govornmonl's anlicipalod socurily purposos and ils offocl
on llo civiIian popuIalion vouId como undor roviov.
Humanitarian nbIigatinns
61. As slalod abovo, ono of llo uniquo foaluros of a navaI bIockado
is llal irrospoclivo of llo purposo for vlicl llo bIockado is imposod,
aII noulraI vossoIs broacling llo bIockado or allompling lo broacl llo
bIockado musl bo sloppod, vlollor lloy aro carrying voapons or ollor
suppIios (commorciaI cargo, lumanilarian oquipmonl, olc.).
210
In ordor
for llo bIockado lo bo rogardod as binding, il musl bo offoclivo, i.o., llo
onlry of aII vossoIs inlo llo Gaza Slrip musl bo provonlod !c |.cic.
211
IsraoI
salisfiod lloso condilions. Onco a bIockado is oslabIislod, il is IikoIy lo
lavo a lumanilarian impacl on llo civiIian popuIalion in llo bIockadod
aroa. Tlo bIockading parly musl lloroforo considor llo lumanilarian
impacl llal llo bIockado viII lavo on llo civiIian popuIalion of llo
lorrilory.
Tlo duly lo considor llo lumanilarian impacl of a navaI bIockado
is slalod in arlicIos 102-104 of llo San Romo ManuaI. Iursuanl lo lloso
arlicIos, llo imposilion of a navaI bIockado is prolibilod if ils soIo purposo
209 Soo Insani Yardim Vakfi, Tlo Ioundalion for Human Riglls and Iroodoms and
Humanilarian RoIiof (IHH), P.|csiinc Our Rcuic Hum.nii.ri.n Ai! Our Ic.!, I|cii||.
C.mp.ign Summ.r Rcpcri 20 |loroinaflor |HH I|cii||. C.mp.ign Summ.rj, .t.i|.o|c .i uuu.
i||.crg.ir/ins.ni-.r!im-|i|csu-czci-r.pcru/cn/. Soo aIso IrolocoI "Iroodom IIoliIIa CoaIilion
Mooling" (May 16, 2010), found on llo compulor of a journaIisl vlo parlicipalod in llo
fIoliIIa on board llo M.ti M.rm.r.. Tlo inlonlion lo broacl llo bIockado vas dispalclod
by llo fIoliIIa parlicipanls ovor llo radio vlon llo IDI Navys forcos laIlod llo slips al
llo slarl of llo onforcomonl oporalion. Soo aIso ||CC rcpcri (}an. 19, 2010), supr. nolo 83, al
5, ||CC rcpcri (}an. 31, 2010), |!., al 1, ||CC rcpcri (Mar. 7, 2010), |!., al 3, and appondix 39
lo "Dofonso Minislors Momorandum - Appondicos" (A CoIIoclion addod lo llo Dofonso
Minislors Momorandum, Aug. 30, 2010), markod by llo Commission as oxlibil 54
|loroinaflor Dc|cnsc Minisicrs Mcmcr.n!um - Appcn!iccsj.
210 I88,-/,"., supr. nolo 86, al 774-775.
211 Hcinisc|c| tcn Hcincgg, |P|I, supr. nolo 91, al para. 33.
is lo slarvo llo civiIian popuIalion or doprivo llom of ollor objocls
ossonliaI for lloir survivaI (arlicIo 102(a)) or if llo damago lo llo civiIian
popuIalion is oxcossivo, or is oxpoclod lo bo oxcossivo, in roIalion lo llo
miIilary advanlago anlicipalod from llo bIockado (arlicIo 102(b)). ArlicIo
103 concorns llo duly of llo bIockading parly lo provido llo civiIian
popuIalion vill food and ollor objocls ossonliaI for ils survivaI, subjocl lo
corlain condilions. ArlicIo 104 providos llal, subjocl lo corlain condilions,
llo bIockading parly slouId onsuro llo passago of modicaI suppIios for
llo civiIian popuIalion or for llo voundod and sick mombors of llo
onomy forcos. In llo originaI Ianguago:
'102. Tlo docIaralion or oslabIislmonl of a bIockado is prolibilod
if:
(a) il las llo soIo purposo of slarving llo civiIian popuIalion or
donying il ollor objocls ossonliaI for ils survivaI, or
(b) llo damago lo llo civiIian popuIalion is, or may bo oxpoclod
lo bo, oxcossivo in roIalion lo llo concrolo and dirocl miIilary
advanlago anlicipalod from llo bIockado.
103. If llo civiIian popuIalion of llo bIockadod lorrilory is
inadoqualoIy providod vill food and ollor objocls ossonliaI for
ils survivaI, llo bIockading parly musl provido for froo passago
of sucl foodsluffs and ollor ossonliaI suppIios, subjocl lo:
(a) llo rigll lo proscribo llo loclnicaI arrangomonls, incIuding
soarcl, undor vlicl sucl passago is pormillod, and
(b) llo condilion llal llo dislribulion of sucl suppIios slaII
bo mado undor llo IocaI suporvision of a Irolocling Iovor
or a lumanilarian organizalion vlicl offors guaranloos of
imparliaIily, sucl as llo InlornalionaI Commilloo of llo Rod
Cross.
104. Tlo bIockading boIIigoronl slaII aIIov llo passago of modicaI
suppIios for llo civiIian popuIalion or for llo voundod and
sick mombors of armod forcos, subjocl lo llo rigll lo proscribo
loclnicaI arrangomonls, incIuding soarcl, undor vlicl sucl
passago is pormillod.
Tlo anaIysis slaII nov lurn lo llo quoslion vlollor llo navaI
bIockado llal IsraoI imposod on llo Gaza Slrip lad a lumanilarian impacl
on llo civiIian popuIalion in llo Gaza Slrip llal rondorod il conlrary lo
inlornalionaI Iav.
62. Ono of llo difficuIlios llal prosonlod ilsoIf boforo llo Commission
vas llal llo vilnossos loslifying on llis mallor found il lard lo idonlify
llo 'lumanilarian impacl of llo navaI bIockado on llo popuIalion of llo
Gaza Slrip, as dislincl from llo impacl of IsraoIs Iand crossings poIicy.
Tlo difficuIly croalod by llo allompl lo assoss llo lumanilarian impacl of
llo navaI bIockado ilsoIf arisos in parl bocauso of llo facl llal ovon boforo
llo navaI bIockado, lloro vas no marilimo lrado via llo coasls of llo Gaza
Slrip sinco lloro vas no suilabIo porl, and in parl bocauso of llo facl llal
boforo IsraoI imposod llo Iand crossings poIicy (Soplombor 19, 2007), llo
inlornalionaI communily onIy mado Iimilod allompls lo bring goods inlo
llo Gaza Slrip by soa. AdmillodIy, llo absonco of a commorciaI porl is
nol a docisivo faclor, sinco il is cIoar llal il is possibIo lo find ollor vays
of lransporling goods arriving by soa, sucl as by moans of unIoading
llo goods vill llo loIp of fisling boals. Moroovor, llo assumplion
llal goods cannol bo lransporlod inlo llo Gaza Slrip in llo absonco of a
commorciaI porl inloronlIy conlradicls llo main purposo of llo bIockado,
i.o., provonling llo passago of voapons lo llo Gaza Slrip, sinco, according
lo llo samo Iogic, il vouId nol bo al aII possibIo lo lransporl voapons lo
llo Gaza Slrip by soa.
AIllougl llo lransporl of goods via llo soa appoars lo bo a Iimilod
possibiIily in llo Gaza Slrip, in llo absonco of informalion and rocords
in llis rogard, il is difficuIl lo dolormino llo offocl of llo navaI bIockado
aIono on llo lumanilarian silualion in llo Gaza Slrip. Il vouId appoar
llal llo fIoliIIa organizors llomsoIvos sougll lo focus allonlion on llo
'lumanilarian impacl of llo Iand crossings poIicy, and nol ospociaIIy on
llo issuo of llo navaI bIockado.
212
Tlo roason vly llo issuo aroso from a
marilimo porspoclivo vas llal llo aclivisls on llo IIoliIIa voro sooking lo
focus allonlion on llo lumanilarian impacl of llo Iand bordor poIicy by
Ioading llo vossoIs vill modicaI and ollor suppIios and sooking lo broacl
llo bIockado, insload of using llo Iand roulo. Accoss from llo soa offorod
a uniquo opporlunily lo inlornalionaIizo and pubIicizo llo broador IsraoIi
poIicy of Iimiling accoss lo Gaza. Accoss from llo soa offorod a uniquo
opporlunily lo inlornalionaIizo and pubIicizo llo broador IsraoIi poIicy of
Iimiling accoss lo Gaza. Tlo goaI of llo IIoliIIa vas obviousIy nol jusl lo
broacl llo bIockado, bul aIso lo bring inlornalionaI prossuro lo boar in a
bid lo ond llo Iand basod roslriclions.
213
63. As nolod abovo, il slouId bo rocaIIod llal llo navaI bIockado vas
nol imposod in a vacuum. Boll llo navaI bIockado and llo Iand crossings
poIicy voro imposod and impIomonlod bocauso of llo proIongod
212 Dc|cnsc Minisicrs Opcn Dccr 1csiimcn, supr. nolo 70, al 23-25.
213 Tlo Iargo numbor of mombors of llo modia on board llo Marmara slrongllons llis
assumplion, il sooms llal llo primary goaI vas poIilicaI and conconlralod on croaling a
modia ovonl, Soo aIso: Primc Minisicrs Opcn Dccr 1csiimcn, supr. nolo 82, al 8, Mi|ii.r
A!tcc.ic-Gcncr.|s icsiimcn, supr. nolo 98, al 65.
inlornalionaI armod confIicl bolvoon IsraoI and llo Hamas. As nolod,
on llo slralogic IovoI - ovon llougl llis may nol lavo boon llo primary
purposo undorIying llo imposilion of llo navaI bIockado - llo navaI
bIockado is rogardod by llo Govornmonl as a parl of IsraoIs vidor offorl
nol lo givo Iogilimacy lo llo Hamass ruIo ovor llo Gaza Slrip, lo isoIalo
il in llo inlornalionaI arona, and lo slrongllon llo IaIoslinian Aullorily.
214

In llis conloxl, llo Ioador of llo opposilion, Tzipi Iivni loslifiod boforo llo
Commission:
'On a praclicaI IovoI, ovon if nol concopluaIIy, on a praclicaI
IovoI, vlon probIoms of llis kind ariso, I romombor lloso limos
llal vo offorod lo lransporl llo goods for llom by Iand. And
lloroforo llo slory is nol vlollor il is possibIo lo lransporl goods
and vlollor for llis purposo vo aro broaking llo bIockado,
bul a fioId llal is a difforonl fioId aIlogollor, vlicl is roaIIy a
socurily fioId, and il is aIso dipIomalic and poIilicaI and anollor
framovork aIlogollor.
215
Tlo navaI bIockado is aIso connoclod lo llo Iand crossings poIicy on
a laclicaI IovoI. Bocauso of llo considorabIo difficuIly of oxamining cargo
on llo ligl soas, llo Iand bordor crossings provido a moro conlroIIod
onvironmonl for llo passago of lumanilarian suppIios.
216
NonolloIoss,
vlon vossoIs aro diroclod for miIilary-laclicaI roasons lo Asldod porl,
in praclico, llo lransporl of llo goods on board is subjocl lo llo Iand
crossings poIicy. Tloroforo, dospilo llo circumslancos doscribod abovo,
il is possibIo llal llo onforcomonl of llo navaI bIockado in addilion lo
llo impIomonlalion of llo Iand crossings poIicy las a lumanilarian
impacl on llo popuIalion, al Ioasl in principIo. In ollor vords, as Iong
as llo Iand crossings aro subjocl lo IsraoIi conlroI, lloro is prim. |.cic a
possibiIily llal llo oponing of an addilionaI roulo lo llo Gaza Slrip, sucl
as a marilimo roulo llal is nol conlroIIod by llo Slalo of IsraoI, viII affocl
llo lumanilarian silualion in llo Gaza Slrip.
Tlus, in llo prosonl caso, somo of llo fIoliIIa vossoIs carriod iron
and comonl, maloriaIs llal lavo boon dofinod by IsraoI as maloriaIs llal
can bo usod for miIilary purposos bocauso of llo oxlonsivo uso mado by
llo Hamas of lloso maloriaIs in ordor lo forlify buiIdings and lunnoIs
214 Ic.!cr c| i|c Oppcsiiicn 1zipi Iitnis cpcn !ccr icsiimcn, supr. nolo 177, al 13-15
215 |!., al 18.
216 AIroady in llo Nolico lo Marinors from 2008 (vlicl vas issuod prior lo llo oslabIislmonl
of llo bIockado), il vas spocificaIIy monlionod llal lumanilarian oquipmonl vouId bo
lransforrod llrougl llo Iand crossings. Iikoviso, in roIalion lo llis fIoliIIa, llo IsraoIi
aullorilios offorod llo fIoliIIa parlicipanls lo clango llo diroclion lovards llo porl of
Asldod and lransfor llo lumanilarian suppIios on board lo llo Gaza Slrip llrougl llo
Iand crossings).
in llo Gaza Slrip.
217
Tloroforo, llo IsraoIi Govornmonl las aIIovod llo
suppIy of buiIding maloriaIs, incIuding comonl and iron, llrougl llo Iand
bordor crossings onIy for projocls approvod by IsraoI and on llo condilion
llal lloir onlry is coordinalod in advanco vill inlornalionaI agoncios
oporaling in llo Gaza Slrip.
218
By conlrasl, llo roprosonlalivos of luman
riglls organizalions llal loslifiod boforo llo Commission omplasizod llo
nood lo bring buiIding maloriaIs inlo llo Gaza Slrip, in ordor lo aIIov
for lousing and roconslruclion in llo vako of Oporalion Casl Ioad.
219

According lo llo fIoliIIa organizors, lloir docision lo lry and lransporl
sucl maloriaIs by soa aroso from lloir viov llal lloso maloriaIs, vlicl
lloy cIaim aro roquirod by llo civiIian popuIalion in llo Gaza Slrip, viII
nol bo pormillod lo pass by llo Iand bordor crossings.
220
Tlo approacl
of llo IsraoIi Govornmonl lloroforo croalod, in llis sonso, a connoclion
rogarding llo lumanilarian offocl on llo Gaza Slrip bolvoon llo navaI
bIockado and llo Iand crossings poIicy.
64. Boforo assossing llo lumanilarian silualion in llo Gaza Slrip, llo
anaIysis viII briofIy considor a proIiminary quoslion: doos llo facl llal
IsraoI is nol in conlroI of llo soullorn bordor bolvoon llo Gaza Slrip
and Igypl (i.o., llo Rafal crossing) affocl IsraoIs rosponsibiIily for llo
lumanilarian silualion in llo Gaza Slrip` Tlo Commission las roaclod
llo concIusion llal llo ansvor lo llis quoslion is no, for lvo roasons.
Iirsl, ovon if llo Iand crossing inlo Igypl vas opon (vlicl vas indood llo
caso al limos), IsraoI vouId sliII bo obIigod, as llo parly llal imposod llo
navaI bIockado, lo oxamino llo lumanilarian silualion in Gaza. Socond,
Igypl did indood imposo roslriclions on movomonl al llo Rafal crossing
217 Ior a Iisl of maloriaIs found on board llo fIoliIIa's slips Soo: "CiviIian IoIicy rogarding
Gaza Slrip - Rcg.r!ing i|c C|.ims c| Hum.n Rig|is Org.niz.iicns" (Ocl. 31, 2010), al 27,
markod by llo Commission as oxlibil 127 |loroinaflor Citi|i.n Pc|ic Rcg.r!ing G.z. Sirip
- Rcg.r!ing i|c C|.ims c| Hum.n Rig|is Org.niz.iicns, D.ic! 31.10.2010j, ||CC rcpcri (}un. 14,
2010), supr. nolo 83.
218 |!., al 27-28. Ior llo curronl Iisl of iloms vlicl couId sorvo boll miIilary purposos and
non-miIilary purposos and vloso onlranco inlo llo Gaza Slrip is nol pormillod, soo: IsraoI
Minislry of Ioroign Casos: Gaza - Iisls of ConlroIIod Inlry Ilom, .t.i|.o|c .i vvv.mfa.
gov.iI/MIA/HumanilarianAid/IaIoslinians/Iisls_ConlroIIod_Inlry_Iloms_4-}uI-2010.
llm (2010).
219 I.ci S|cci. Uniic! N.iicns Hum.nii.ri.n Ccunir 1c.m A!tcc.c |tcni cn i|c G.z.
Sirips Agricu|iur.| Sccicr, .t.i|.o|c .i vvv.oclaopl.org/documonls/gaza_
agricuIluro_25_05_2010_facl_slool_ongIisl.pdf (2010) |loroinaflor I.ci S|ccij,
220 Uniic! N.iicns. 2010 Ccnsc|i!.ic! Appc.|. Occupic! P.|csiini.n 1crriicr, .t.i|.o|c .i
lllp://oclaonIino.un.org/lumanilarianappoaI/vobpago.aspÌago=1823 (2009), al 53
|loroinaflor Ccnsc|i!.ic! Appc.|j,
Uniic! N.iicns Rc|ic| .n! Wcr|s Agcnc (UNRWA. |mcrgcnc Opcr.iicns in G.z., |nicrim
Prcgrcss Rcpcri j.nu.r-M.rc| 2009, .t.i|.o|c .i vvv.unrva.org/usorfiIos/20100119593.
pdf (2009), al 10 |loroinaflor |mcrgcnc Opcr.iicnsj.
|HH I|cii||. C.mp.ign Summ.r, supr. nolo 209, al 10.
during llo roIovanl limo poriod. Givon llo IogaI roquiromonl lo considor
llo impacl of llo navaI bIockado on llo lumanilarian silualion in Gaza,
llo anaIysis viII nov lurn lo llal issuo.
!"# "78+'3)+53+' 63)7+)3&' 3' )"# >+?+ @)53(
Background
65. Tlo oxaminalion of llo lumanilarian silualion in llo Gaza
Slrip musl bo carriod oul in llo conloxl of llo gonoraI framovork of
llis discussion. As nolod abovo, from llo limo llal IsraoI look conlroI
ovor llo Gaza Slrip unliI 1981, IsraoI suppIiod aII llo civiIian noods of
llo Gaza Slrip llrougl llo miIilary adminislralion. In 1981, llo civiIian
adminislralion vas oslabIislod, vlicl suppIiod llo noods of llo Gaza
Slrip unliI llo Gaza-}oriclo Agroomonl vas signod in 1994. Irom llis
slago onvard unliI llo impIomonlalion of llo disongagomonl pIan in 2005,
IsraoIs roIo vas diminislod and mainIy incIudod aid, coordinalion, and
carrying oul Iiaison oporalions vill llo IaIoslinian Aullorily. In 2005,
vlon llo miIilary adminislralion in llo Gaza Slrip vas cancoIIod and
llo IDI Iofl llo lorrilory, llo nood lo conlinuo lo coordinalo Govornmonl
oporalions rogarding llo Gaza Slrip romainod, ospociaIIy vill rogard lo
llo aclivily of llo Iand crossings bolvoon IsraoI and llo Gaza Slrip, vlicl
IsraoI conlinuos lo conlroI.
221
66. Tlo IsraoIi onlily rosponsibIo for coordinaling vill llo Gaza Slrip
and llo Wosl Bank is caIIod llo 'Coordinalion of Govornmonl Aclivilios
in llo Torrilorios (COGAT), vlicl is loadod by llo Coordinalor of
Govornmonl Aclivilios in llo Torrilorios, an officor vill llo rank of
Major-GonoraI, vlo is diroclIy subordinalo lo llo Minislor of Dofonso and
al llo samo limo is a mombor of llo GonoraI Slaff of llo IDI. Tlo brancl
of COGAT llal doaIs vill llo Gaza Slrip is llo Dislricl Coordinalion and
Iiaison Offico for llo Gaza Slrip (Gaza Slrip DCO), vlicl is loadod by
an officor vill llo rank of CoIonoI. Tlo Gaza Slrip DCO coordinalos llo
aclivily vill llo IaIoslinian Aullorily, and il aIso advisos IDI commandors
in llo fioId (loadod by llo Soullorn Dislricl Commandor and llo Gaza
Division Commandor) vill rogard lo civiIian and lumanilarian issuos in
llo Gaza Slrip.
According lo loslimony of llo Coordinalor of Govornmonl Aclivilios
in llo Torrilorios, Major-GonoraI Iilan Dangol, il appoars llal COGATs
mission rogarding llo Gaza Slrip is: (1) 'Ioading and impIomonling llo
civiIian poIicy. in llo clanging roaIily, in coordinalion and cooporalion
221 Citi|i.n Pc|ic Rcg.r!ing G.z. Sirip - P.ri A, supr. nolo 52, al 6-7.
vill llo IDI, llo socurily oslabIislmonl and Govornmonl minislrios, (2)
formuIaling and impIomonling conlacls vill llo IaIoslinian Aullorily,
civiIian organizalions and llo inlornalionaI communily..
222
Tlo
Coordinalor of Govornmonl Aclivilios in llo Torrilorios aIso slalod llal
al llo boginning of 2010, COGAT dofinod lvo parlicuIar goaIs for llo
coming lvo yoars: formuIaling an assossmonl of llo civiIian silualion
in llo IaIoslinian sploro vliIo idonlifying and anaIyzing lronds and
procossos, and, vill rogards lo llo Gaza Slrip, of 'pIanning and roaIizing
llo lumanilarian offorl and assislanco lo llo popuIalion, vliIo inlograling
llom inlo llo campaign lo voakon Hamas.
223
Today, llroo Iand crossings bolvoon IsraoI and llo Gaza Slrip aro
aclivo: llo Korom SlaIom crossing, vlicl is usod, inicr .|i., as llo officiaI
crossing for fuoI inlo llo Gaza Slrip, llo Iroz crossing, vlicl is usod
for llo movomonl of poopIo, and llo Karni crossing, vlicl is usod for
lransporling soodod food and aggrogalos, and vloso oporalion is assossod
oacl day according lo socurily considoralions.
224
AII of llo crossings aro
oporalod by llo Iand Crossings Aullorily al llo Minislry of Dofonso
and in coordinalion bolvoon llo Gaza Slrip DCO and llo IaIoslinian
Crossings Adminislralion, vlicl is subordinalo lo llo IaIoslinian Irimo
Minislor, SaIam Iayyad.
225
IsraoIs bordor crossings poIicy Soplombor 19, 2007- }uno 10, 2009
222 1csiimcn c| Gctcrnmcni Aciitii Cccr!in.icr in i|c 1crriicrics, supr. nolo 162, al 2-3, llo
llird dosignalion - lo conslilulo a civiIian aullorily for llo IsraoIi sollIomonl in llo Wosl
Bank in llo fioIds of pIanning and infraslrucluro - is irroIovanl lo llo Gaza Slrip foIIoving
llo Disongagomonl.
223 |!., al 4.
224 Ovor llo yoars, bordor crossings Sufa and NalaI Oz aIso oporalod bolvoon IsraoI and llo
Gaza Slrip. Tlo Sufa crossing sorvod as a lomporary aIlornalivo passago foIIoving llo
cIosuro of llo Karni crossing in 2007 (in Iigll of llo difficuIl socurily silualion in llo aroa,
llo risk of oporaling llo crossing, and llo Iack of a coordinalion onlily on llo IaIoslinian
sido). In Augusl 2008, llis crossing vas cIosod and llo aclivily vas lransforrod lo llo
Korom SlaIom crossing. Tlo Gas lorminaI al NalaI Oz vas largolod in a numbor of lorrorisl
allacks, incIuding llo kiIIing of lvo IsraoIi civiIians vlo vorkod al llo lorminaI on Apr. 9,
2008, as voII as llo firing of rockols and morlar sloIIs and an allompl lo dig a lunnoI and
pIanl oxpIosivos undor llo passago, il vas lloroforo docidod lo slul il dovn. Il slouId aIso
bo monlionod llal llo ollor crossings voro aIso largolod by lorrorisl allacks, incIuding a
combinod allack al Karni crossing on }an. 13, 2005 vloro an oxpIosivo clargo dolonalod al
llo crossing and llroo lorrorisls bursl inlo llo crossing and kiIIod six IsraoIi civiIians. On
Apr. 19, 2008, Iassovor ovo, an allack look pIaco on llo Korom SlaIom crossing, backod by
morlar sloIIs, an armorod volicIo and lvo cars packod vill oxpIosivos disguisod lo Iook
Iiko IDI joops. In llis allack, 13 soIdiors voro injurod and llo crossing lad lo bo slul dovn
for ropairs (oslimalod al lon miIIion slokoIs), Soo Citi|i.n Pc|ic Rcg.r!ing G.z. Sirip - P.ri
A, supr. nolo 52, al 35-40.
225 |!.
67. As slalod abovo, in 2007 lloro vas a clango in IsraoIs poIicy
lovards llo Gaza Slrip. As a rosuIl of llo Hamas lakoovor of llo Gaza
Slrip, llo MinisloriaI NalionaI Socurily Commilloo docidod lo imposo
civiIian roslriclions on llo Gaza Slrip, incIuding a roslriclion on llo
lransfor of goods, a roduclion in llo suppIy of fuoI and oIoclricily, and a
roslriclion on llo movomonl of porsons in and oul of llo Gaza Slrip, aflor
a IogaI oxaminalion of llo issuo and vill llo inlonlion of provonling a
lumanilarian crisis in llo Gaza Slrip.
226
On }uno 10, 2009, llo MinisloriaI
Commilloo furllor docidod llal llo aclivily of llo crossings vouId bo
dolorminod, inicr .|i., by llo basic noods of llo IaIoslinian popuIalion,
and conlroI vas inlroducod vill rogard lo llo lransfor of monoy lo llo
Gaza Slrip (loroaflor, joinlIy: the Iand crnssings pnIicy). As ovidoncod
by llo loslimonios llal llo Commission loard, llo Iand crossings poIicy
sougll lo acliovo lvo goaIs: a socurily goaI of provonling llo onlry of
voapons, ammunilion and miIilary suppIios inlo llo Gaza Slrip in ordor
lo roduco llo Hamas allacks on IsraoI and ils cilizons, and a broador
slralogic goaI of 'indirocl oconomic varfaro, vloso purposo is lo roslricl
llo Hamas oconomic abiIily as llo body in conlroI of llo Gaza Slrip lo
lako miIilary aclion againsl IsraoI.
227
Tlis is nol a uniquo circumslanco, as
las boon nolod lisloricaIIy, 'llo lvo forms lond |miIilary and oconomicj
lo run inlo oacl ollor.
228
Il slouId bo nolod llal pursuanl lo llo aforosaid rosoIulions,
lloro is no conlacl bolvoon IsraoI and llo Hamas govornmonl in llo
Gaza Slrip, and any communicalion vill llo Gaza Slrip is carriod oul
llrougl roprosonlalivos of llo IaIoslinian Aullorily (llo govornmonl
of SaIam Iayyad) or llrougl inlornalionaI organizalions.
229
Tlo acluaI
impIomonlalion of llo poIicy is carriod oul by COGAT.
230
Wo slaII discuss
llo principIos llal COGAT foIIovs in impIomonling llo poIicy and ils
acluaI impIomonlalion boIov.
68. In ordor lo compIolo llo picluro il slouId bo nolod llal llo Iand
crossings poIicy vas aIlorod in }uno 2010. In llo roIovanl rosoIulion, il
vas slalod llal sovoraI slops vouId bo lakon villoul doIay, incIuding
226 |!., al 10-11, Soo aIso 1csiimcn c| Gctcrnmcni Aciitii Cccr!in.icr in i|c 1crriicrics, supr.
nolo 162, al 37.
227 1csiimcn c| Gctcrnmcni Aciitii Cccr!in.icr in i|c 1crriicrics, supr. nolo 162, al 51, on llis
mallor soo aIso Z,&,.' !%$%. \%&&%##F <-"$,3 =%$"*-1 A%-9$"*-1 %-3 $/, ]B#,
*; 6%H 107 (2007).
228 Soo :*#*.4*1F 0/, 5-$,&-%$"*-%# 6%H *; $/, A,%, supr. nolo 94, al 716-717.
229 Tlo Govornmonl Aclivily Coordinalor in llo Torrilorios las conlacl vill approximaloIy
160 inlornalionaI organizalions on mallors rogarding llo Gaza Slrip, Soo 1csiimcn c|
Gctcrnmcni Aciitii Cccr!in.icr in i|c 1crriicrics, supr. nolo 162, al 14.
230 |!., al 17.
llo pubIicalion of a Iisl of iloms prolibilod from onloring llo Gaza Slrip
llal vouId incIudo 'onIy voapons, miIilary oquipmonl and probIomalic
duaI-purposo iloms. Any ilom llal doos nol appoar on llo aforosaid Iisl,
according lo llo rosoIulion, viII bo pormillod lo onlor. An addilionaI
clango in llis poIicy vas mado on Docombor 8, 2010, vlon il vas rosoIvod
llal, subjocl lo corlain roslriclions, approvaI vouId bo givon lo a graduaI
poIicy for sonding goods from llo Gaza Slrip oulsido llo bordors of IsraoI
and lo llo Wosl Bank.
231
Nolvillslanding lloso roconl aIloralions, boIov
vo slaII considor llo Iand crossings poIicy llal vas in forco in May 2010.
=.+386 5#4+513'4 )"# "78+'3)+53+' 63)7+)3&' 3' )"# >+?+ @)53(
69. Tlo ovidonco llal llo Commission look inlo considoralion vlon
assossing llo impacl of llo Iand crossings poIicy on llo civiIian popuIalion
in llo Gaza Slrip voro llo loslimony of llo Coordinalor of Govornmonl
Aclivilios in llo Torrilorios, llo loslimonios of luman riglls organizalions,
and roporls of luman riglls and lumanilarian organizalions llal oporalo
in llo Gaza Slrip. In llis conloxl, il slouId bo nolod llal assossing llo
offoclivonoss and lumanilarian consoquoncos of oconomic sanclions
can bo claIIonging bocauso of llo difficuIly in soparaling llo offocls of
sanclions from ollor causos of poIilicaI and sociaI disruplion. WliIo llis
doos nol moan llal lracing llo infIuonco of sanclions is impossibIo il
doos suggosl llo nood for lumiIily and caulion in draving concIusions
aboul sanclions offocls.
232
Al llo samo limo, groal caro slouId bo lakon
vlon anaIyzing llo lumanilarian silualion in lorrilorios vloro llo
lumanilarian silualion vas poor from llo oulsol bocauso '. counlrios
aIroady on llo vorgo of lumanilarian crisis cIoarIy aro moro IikoIy lo bo
puslod ovor llo odgo by offoclivoIy imposod oconomic sanclions.
233
70. Il is lloroforo imporlanl lo boar in mind llo posilion llal provaiIod
in llo Gaza Slrip boforo llis poIicy vas adoplod. Irom a pubIicalion of
llo WorId Bank of }uno 23, 2004, il vouId appoar llal llo povorly IovoI
in llo Gaza Slrip las sloadiIy incroasod. In 1998, llo IovoI vas 21,6,
231 Soo docision no. B/64 of llo MinisloriaI NalionaI Socurily Commilloo (llo IoIilicaI-
Socurily Cabinol) of Docombor 8, 2010.
232 E%+"3 :*&$&"7/$ %-3 ),*&7, 2@ 6*8,VF 0/, A%-9$"*-1 E,9%3,> 211,11"-7 <=
A$&%$,7",1 "- $/, O^^Q1 213 (2000).
233 |!.
rising lo noarIy 35 in 2006.
234
In 2003, llo unompIoymonl IovoI vas 29.
235

Sanilary condilions in Gaza voro assossod as 'vory poor.
236

71. As for llo lumanilarian silualion provaiIing in llo Gaza Slrip
sinco llo oslabIislmonl of llo Iand crossings poIicy in Soplombor 2007,
llo ovidonco brougll boforo llo Commission and addilionaI maloriaI
oxaminod by llo Commission of ils ovn inilialivo soomod al limos lo
prosonl lvo vory difforonl porcoplions of roaIily. Human riglls and
lumanilarian organizalions prosonlod (boforo llo Commission and in
ollor forums) a posilion llal lloro is a roaI lumanilarian crisis in llo
Gaza Slrip.
237
By conlrasl, IsraoIi govornmonl officiaIs voro unanimousIy
cIoar in lloir assossmonl llal lloro vas no lumanilarian crisis in
Gaza.
238
Prim. |.cic, il is difficuIl lo roconciIo llo viov of llo lumanilarian
silualion prosonlod by luman riglls organizalions vill llal of llo IsraoIi
govornmonl. Hovovor, llo Commilloo viII provido a briof ovorviov of
somo of llo main aroas llal roquiro furllor oxaminalion - vlicl appoars
lo bo food, loaIll caro, modicaI suppIios, oIoclricily, fuoI, valor, sanilalion,
and IivoIilood - in ordor lo cIarify and iIIuminalo llo lvo posilions.
72. According lo roporls of luman riglls and lumanilarian
organizalions roporl llal 60.5 of lousoloIds suffor from 'food
insocurily.
239
Iood insocurily is dofinod as a silualion in vlicl 'poopIo
234 1|c Wcr|! B.n|. Wcsi B.n| .n! G.z.. |ccncmic Dctc|cpmcnis .n! Prcspccis - M.rc|
2008, .t.i|.o|c .i lllp://vob.vorIdbank.org/WBSITI/IXTIRNAI/COUNTRIIS/
MINAIXT/WISTBANKGAZAIXTN/0,,conlonlMDK:21694302~monuIK:294370~pago
IK:2865066~piIK:2865079~lloSiloIK:294365,00.llmI (2008).
235 |!.
236 |CRC. G.z. C|csurc. Nci Anci|cr Yc.r, .t.i|.o|c .i vvv.icrc.org/vob/ong/siloong0.nsf/
llmIaII/paIoslino-updalo-140610 (2010) |loroinaflor G.z. C|csurcj.
237 Ccnsc|i!.ic! Appc.|, supr. nolo 219, al 9 (vlicl roIalos lo llo silualion in Gaza as a crisis of
"Human Dignily"),
UNRWA: |mcrgcnc Appc.| 2010, 9, .t.i|.o|c .i vvv.roIiofvob.inl/rv/RWIiIos2010.
nsf/IiIosByRWDocUnidIiIonamo/VVOS-7ZUU59-fuII_roporl.pdf/$IiIo/fuII_roporl.pdf
(2010), 6 |loroinaflor Prcir.cic! Scciccccncmic Crisisj,
Unilod Nalions, Offico for llo Coordinalion of Humanilarian Casos (OCHA): Occupic!
P.|csiini.n 1crriicr, 1|c Hum.nii.ri.n Mcniicr, .t.i|.o|c .i vvv.oclaopl.org/documonls/
ocla_opl_llo_lumanilarian_monilor_2010_06_21_ongIisl.pdf (2010) |loroinaflor Scricus
Crisis c| Hum.n Digniij,
Soo aIso G.z. C|csurc, supr. nolo 236, and I.ci S|cci, supr. nolo 219.
238 Primc Minisicrs Opcn Dccr 1csiimcn, supr. nolo 82, al 8, Mi|ii.r A!tcc.ic-Gcncr.|s
icsiimcn, supr. nolo 98, al 57, Opcn Dccr 1csiimcn c| Gctcrnmcni Aciitii Cccr!in.icr in
i|c 1crriicrics, supr. nolo 162, al 60, Dc|cnsc Minisicrs Opcn Dccr 1csiimcn, supr. nolo 70,
al 24, Ic.!cr c| i|c Oppcsiiicn 1zipi Iitnis cpcn !ccr icsiimcn, supr. nolo 177, al 31.
239 Soo Ccnsc|i!.ic! Appc.|, supr. nolo 219, al 2, 23.
Tlo mallor may acluaIIy rofIocl a corlain improvomonl as comparod lo provious yoars,
vill llo roporl sloving llal 75 of Gazas popuIalion sufforod from food insocurily
foIIoving IsraoIs allack as parl of Oporalion "Casl Ioad", lovovor, il sliII prosonls a ligl
IovoI of food insocurily. Soo OCHA. Icc|c! |n. 1|c Hum.nii.ri.n |mp.ci c| 1uc Yc.rs c|
Iack suslainabIo plysicaI or oconomic accoss lo adoqualo safo, nulrilious
and sociaIIy accoplabIo food lo mainlain a loaIlly and produclivo Iifo.
240

Tlis silualion is doscribod as a rosuIl of 'food prico infIalion, povorly,
IivoIiloods dolorioralion and orosion of coping moclanisms, Ioading
lo incroasod difficuIlios of lousoloIds lo afford sufficionl quanlilios of
quaIily food.
241
Tloso organizalions aIso cIaim llal llo loaIll caro syslom in llo
Gaza Slrip is dolorioraling. Slocks of ossonliaI modicaI suppIios lavo
roaclod an aII-limo Iov.
242
Tlo roslriclions imposod on porsons passing
llrougl llo Iand bordor crossings affocls palionls llal roquiro modicaI
lroalmonl oulsido llo Gaza Slrip, llo major impodimonl boing Iack of
rosponso by IsraoIi aullorilios lo appIicalions for pormil by llo limo of
llo scloduIod appoinlmonl.
243
According lo llo loslimony of Ilysicians
for Human Riglls (a non-govornmonlaI organizalion, vlicl advocalos
for luman riglls in gonoraI and for llo rigll lo loaIll in parlicuIar, in
IsraoI and in llo lorrilorios), approximaloIy 30 por conl of appIicalions for
pormils aro rojoclod or doIayod.
244
Will rogard lo llo suppIy of oIoclricily
lo llo Gaza Slrip, lloso organizalions said llal llo domand al 240-280
Mogavalls, is nol boing mol. As a rosuIl, llo popuIalion in llo Gaza Slrip
oxporioncos proIongod oIoclricily oulagos of an avorago of sovon lours a
day. Tloso oulagos lavo dovaslaling offocls on llo loaIll syslom, vlicl
nov roIios on gonoralors for vlicl fuoI rosorvos aro nol oasiIy accossibIo.
245
As slalod by various organizalions, during llo Oporalion Casl Ioad,
approximaloIy 3,500 lousos in llo Gaza Slrip voro compIoloIy doslroyod,
and approximaloIy 2,800 lousos voro significanlIy damagod.
246
Tlo
prolibilion imposod by IsraoI on llo onlry of buiIding maloriaIs provonls
llo buiIding and roconslruclion of rosidonliaI lousos, sclooIs, modicaI
faciIilios and pubIic infraslrucluros. Moroovor, onIy approximaloIy 60 of
B|cc|.!c cn i|c G.z. Sirip, .t.i|.o|c .i vvv.oclaopl.org/documonls/Ocla_opl_Gaza_
impacl_of_lvo_yoars_of_bIockado_Augusl_2009_ongIisl.pdf (2009) |loroinaflor Spcci.|
Iccusj.
240 Spcci.| Iccus, supr. nolo 239, al 9.
241 Soo Ccnsc|i!.ic! Appc.|, supr. nolo 219, al 23.
242 Soo G.z. C|csurc, supr. nolo 236.
243 UNRWA. Up!.ic! Quic| Rcspcnsc P|.n |cr G.z.. An Asscssmcni c| Ncc!s Six Mcni|s .|icr i|c
W.r, .t.i|.o|c .i vvv.unrva.org/usorfiIos/20100119144213.pdf (2010), al 26 |loroinaflor
Quic| Rcspcnsc P|.n |cr G.z.j.
244 Transcripl of sossion no. 4 "Toslimony of Ilysicians for Human Riglls Roprosonlalivos"
(Irofossor Tzvi Bonlovilz, Ran Yoron & Dr. Mouslafa Yasin) (Ocl. 13, 2010), al 8
|loroinaflor 1csiimcn c| P|sici.ns |cr Hum.n Rig|isj.
246 Soo Ccnsc|i!.ic! Appc.|, supr. nolo 219, al 15, Spcci.| Iccus, supr. nolo 239, al 3.
llo popuIalion of llo Gaza Slrip is connoclod lo llo sovago syslom,
247
and
90 of llo valor suppIiod lo llo inlabilanls of llo Gaza Slrip is unsafo for
drinking according lo llo slandards of llo WorId HoaIll Organizalion.
248
According lo various roporls, moro llan a miIIion poopIo Iivo on
lumanilarian aid providod by various lumanilarian organizalions in
llo Gaza Slrip.
249
Various luman riglls and lumanilarian organizalions
oslimalo llal llo prolibilion on oxporls imposod by IsraoI, in addilion lo
llo sovoro roslriclions on imporls, las !c |.cic paraIyzod llo privalo soclor.
250

Tloso organizalions lloroforo concIudo llal llo coIIapso of llo oconomy
of llo Gaza Slrip dorivos from llo navaI bIockado imposod by IsraoI
and ils Iand crossings poIicy.
251
Hovovor, il slouId bo nolod llal ovon
llougl llo various lumanilarian organizalions crilicizo llo imposilion
of llo navaI bIockado in }anuary 2009, in roaIily, llo imposilion and llo
onforcomonl of llo bIockado drov onIy IillIo allonlion prior lo llo ovonl
of May 31, 2010.
73. By conlrasl, llo Coordinalor of Govornmonl Aclivilios in llo
Torrilorios, in a loslimony llal vas supporlod by a significanl numbor of
documonls, oxpIainod lov IsraoI !c |.cic impIomonls ils Iand crossings
poIicy in llo four aroas idonlifiod in llo Govornmonl rosoIulion: onlry and
oxil of goods from llo Gaza Slrip, movomonl of porsons, oIoclricily and
fuoI, and monolary aclivily. Tlo Coordinalor of Govornmonl Aclivilios in
llo Torrilorios aIso addrossod spocific cIaims llal voro raisod boforo llo
Commission by llo loslifying luman riglls organizalions.
1|c cnir .n! cxii c| gcc!s |rcm i|c G.z. Sirip. Tlo Coordinalor of
Govornmonl Aclivilios in llo Torrilorios loslifiod boforo llo Commission
llal llo impIomonlalion of llo Govornmonls poIicy in llis fioId is guidod
by duaI considoralions: lo impIomonl llo roslriclions dolorminod in llo
Govornmonls rosoIulions and lo lransfor llo goods nocossary lo mool
llo noods of llo civiIian popuIalion.
252
Tlo Coordinalor of Govornmonl
Aclivilios in llo Torrilorios cIarifiod llal aII llo goods onloring llo
Gaza Slrip aro financod by llo IaIoslinian Aullorily, morclanls on
markol lorms, or by inlornalionaI organizalions, nol by IsraoI.
253
IsraoI
248 Gis|.. Rc! Iincs Crcssc!. Dcsiruciicn c| G.z.s |n|r.siruciurc, .t.i|.o|c .i vvv.gisla.org/
UsorIiIos/IiIo/pubIicalions_/Infraslrucluro_Roporl_Aug09_Ing.pdf (2009) |loroinaflor
Rc! Iincs Crcssc!j.
250 Quic| Rcspcnsc P|.n |cr G.z., supr. nolo 243, al 7.
251 |!., al 22.
252 1csiimcn c| Gctcrnmcni Aciitii Cccr!in.icr in i|c 1crriicrics, supr. nolo 162, al 77.
253 |!., al 10-11.
is moroIy llo parly llal coordinalos and ovorsoos llo passago of goods
in and oul of llo Gaza Slrip. Tlo Coordinalor of Govornmonl Aclivilios
in llo Torrilorios vonl on lo doscribo in dolaiI llo moclanism vloroby
llis procoss oporalos as foIIovs: llo roquosls lo bring goods inlo llo
Gaza Slrip aro rocoivod by llo DCO from four parlios. Tlo Gaza Slrip
Iconomic Commilloo (a roprosonlalion of llo IaIoslinian Aullorily) is
llo main IaIoslinian parly from vlicl roquosls aro rocoivod for onlry
of goods. Tlis commilloo rocoivos roquosls from privalo markol forcos
and imporlors in llo Gaza Slrip. Tlo roquosls nood lo incIudo aII of llo
roIovanl dolaiIs, incIuding llo parlios suppIying llo foods and dolaiIs of
llo carriors. Ordoring llo goods and dolormining priorilios bolvoon llo
various parlios roquosling llo onlry of goods is dono by roprosonlalivos
of llo IaIoslinian Aullorily in llo Gaza Slrip. Tlis Iisl is doIivorod oacl
day from llo Gaza Slrip DCO lo llo load of llo Iconomy Division (an
officor vill llo rank of Iioulonanl-CoIonoI), vlicl oxaminos llo roquosls
in accordanco vill llo civiIian poIicy as slalod abovo. Iorsons in llo
Gaza Slrip DCO onIy inlorvono in llis inlornaI ordor of priorilios vlon
according lo lloir judgmonl lloro is a slorlago of corlain producls in llo
Gaza Slrip. In addilion, llo DCO rocoivos roquosls from officiaI bodios
in llo Gaza Slrip, incIuding llo IaIoslinian Minislry of AgricuIluro
in llo Gaza Slrip and llo IaIoslinian Aullorilys valor and oIoclricily
aullorilios. Ollor onlilios llal submil roquosls lo llo DCO lo bring goods
inlo llo Gaza Slrip aro inlornalionaI organizalions.
Tlo onlry of goods is subjocl lo llo crossings capacily. Bolvoon
llo various roquosls, llo ordor of priorilios for llo onlry of goods is
dolorminod as foIIovs: (1) modicaI suppIios and modicino, (2) roquosls by
inlornalionaI organizalions - lumanilarian aid and suppIios for approvod
projocls, (3) agricuIluraI maloriaIs, (4) llo baIanco of suppIy capacily for
llo privalo markol, according lo llo ordor of priorilios dolorminod by llo
IaIoslinians. Aflor agrooing upon llo Iisl, llo parlios in llo Gaza Slrip
DCO coordinalo llo acluaI onlry of llo goods vill inlornalionaI bodios,
llo IaIoslinians, and llo Iand Crossings Aullorily of llo Minislry of
Dofonso. ImpIomonlalion roporls aro dislribulod vill a summary for
oacl day, vook, and monll lo aII of llo socurily aullorilios and llo
inlornalionaI communily.
254
254 Citi|i.n Pc|ic Rcg.r!ing G.z. Sirip - P.ri A, supr. nolo 52, al 17-18. IxampIos of said roporls
voro lransforrod lo llo Commission, markod as oxlibil 111-112 of llo Commissions
oxlibils. As a ruIo, llo daiIy roporls incIudo roforonco lo llo lransfor of goods and fuoI lo
llo Gaza Slrip, llo crossings llrougl vlicl lloso goods passod, and llo lypo of goods
and fuoI brougll inlo llo Gaza Slrip according lo llo numbor of lrucks (or lankors, as llo
caso may bo) and in molric lons.
In praclico, lloro is a roslriclion on llo t.rici of producls llal can
bo brougll inlo llo Gaza Slrip, in llo form of llo 'Iisl of lumanilarian
producls approvod for onlry inlo llo Gaza Slrip.
255
Will rogard lo llo
roslriclion on llo u.niii of goods onloring llo Gaza Slrip via llo Iand
crossings, llo maloriaI submillod by COGAT slalos llal aparl from a
roslriclion doriving from llo capacily of llo crossings and a quola for
llo onlry of fuoI (vlicl vas approvod by llo Supromo Courl)
256
and
a quola for llo onlry of agricuIluraI producls,
257
lloro is no quola
Iimiling llo amounls of foods llal aro aIIovod lo onlor llo Gaza Slrip.
Nolvillslanding, il slouId bo slalod llal from llo maloriaI submillod
lo llo Commission by COGAT, il is ovidonl llal al Ioasl during corlain
poriods lloro vas a roslriclion on llo numbor of lrucks pormillod lo onlor
al llo crossings oacl day / vook for producls llal do nol faII villin llo
scopo of agricuIluraI producls or fuoI.
258
In addilion, llo Coordinalor of
Govornmonl Aclivilios in llo Torrilorios addod llal, in gonoraI, llo fIov
of goods al llo Iand crossings is slabIo and pormanonl, bul somolimos
IsraoI is compoIIod lo cIoso llo Iand crossings bocauso of dirocl slooling
allacks of rockols llal aro firod al llom by Hamas. In sucl silualions, llo
aclivily al llo crossings usuaIIy docroasos for sovoraI days, bul usuaIIy
rolurns lloroaflor lo ils provious IovoI.
255 Soo Citi|i.n Pc|ic Rcg.r!ing G.z. Sirip - Rcg.r!ing i|c C|.ims c| Hum.n Rig|is Org.niz.iicns,
D.ic! 31.10.2010, supr. nolo 217, al appondix A (markod as a drafl bul according lo
lis slalomonl sorvod as an obIigaling ordor), from llo documonl il is ovidonl llal llo
guidoIinos for llo incIusion of a spocific producl in llo Iisl of producls aullorizod lo onlor
llo Gaza Slrip aro: nocossily of llo producl for mooling lumanilarian noods, incIuding
impIicalions on pubIic loaIll (in llo Gaza Slrip and in IsraoI), "llo imagislic porcoplion
|llus in originaIj of llo producl" (llal is, vlollor llo producl is considorod lo bo a Iuxury
ilom), IogaI/judiciaI obIigalion lo pormil llo onlranco of llo producl, "impIicalions of
llo producls usos (viII il bo usod for consorvalion, robuiIding, or dovoIopmonl) vliIo
slrossing llo infIuonco of ils onlranco on llo slalus of llo Hamas rogimo", socurily
impIicalions (can llo producl bo usod for miIilary purposos), sonsilivily lo llo noods of
llo inlornalionaI communily, llo oxislonco of aIlornalivos.
256 A|-B.ssicuni caso, supr. nolo 140, al paras. 17-21.
257 Citi|i.n Pc|ic Rcg.r!ing G.z. Sirip - P.ri A, supr. nolo 52, al 14, 22 lrucks a day vlicl
vas oxpandod lo 26 lrucks a day, llougl il vas monlionod llal llis is nol a slricl Iimil.
Iikoviso il vas monlionod llal llis cap doos nol appIy lo agricuIluraI produco lransforrod
from llo Wosl Bank lo llo Gaza Slrip in coordinalion vill llo Iconomic commilloo in
llo slrip. Irom llo maloriaI submillod by llo Govornmonl Aclivily Coordinalor in llo
Torrilorios, il can bo soon llal foIIoving llo govornmonls docision of 18.3.2009 llo avorago
daiIy numbor of lrucks onloring llo slrip roso lo 71 doubIo food lrucks, as comparod lo 67
lrucks (nol aII of llom doubIo) proviousIy, al llo samo limo il slouId bo slrossod llal llis
dala rofors lo llo lolaI food and agricuIluraI producls onloring llo Gaza Slrip and nol jusl
llo agricuIluraI produco and inpul.
258 Citi|i.n Pc|ic Rcg.r!ing G.z. Sirip - Rcg.r!ing i|c C|.ims c| Hum.n Rig|is Org.niz.iicns,
D.ic! 31.10.2010, supr. nolo 217, al Appondix A. llus for oxampIo il arisos from llo
maloriaI llal on 30.5.2010 lloro vas a quanlilalivo cap on llo numbor of lrucks carrying
cIolling and sloos aIIovod lo pass llrougl llo Iand crossings.
Tlo Coordinalor of Govornmonl Aclivilios in llo Torrilorios mado
cIoar in lis loslimony llal aflor llo disongagomonl, llo Slalo of IsraoI is
unabIo lo monilor llo doslinalions of llo goods insido llo Gaza Slrip,
sinco IsraoI las no plysicaI prosonco in llo lorrilory ilsoIf.
259
Hovovor,
lo oxpIainod llal COGAT monilors llo silualion vill aII of llo moans
al ils disposaI in ordor lo onsuro llal llo poIicy doos nol Ioad lo a
lumanilarian crisis in llo Gaza Slrip. Ior inslanco, COGAT makos uso
of silualion assossmonls and poriodic forums vill IaIoslinian Aullorily
aullorilios in llo Gaza Slrip, vill IsraoIi Govornmonl minislrios and llo
inlornalionaI communily (sucl as UN agoncios, llo Socrolary-GonoraIs
SpociaI Coordinalor for llo MiddIo Iasl Ioaco Irocoss, dipIomalic
roprosonlalions, roprosonlalivos of llo Quarlol, roprosonlalivos of llo
Iuropoan Union, llo Rod Cross, non-govornmonlaI organizalions and
luman riglls organizalions), informalion llal is rocoivod from llo
IaIoslinian modia, olc. During llo socond laIf of 2008, COGAT formuIalod
a supporl modoI for buiIding up a silualion picluro, vlicl is knovn as
a 'SuppIy Assossmonl, an oconomic modoI oxprossod in a formuIa llal
is supposod lo loIp caIcuIalo llo 'suppIy IovoI of various producls (i.o.,
for lov many days llo amounl of suppIios curronlIy prosonl in llo Gaza
Slrip viII Iasl). Tlo promiso is llal al any givon momonl lloro slouId bo
a corlain 'suppIy IovoI for oacl of llo producls vloso onlry is pormillod.
Wlon llo suppIy IovoI for a corlain producl faIIs boIov a sol minimum,
procoduros aro pul inlo oporalion in ordor lo vorify llo figuros, produco
a daiIy suppIy assossmonl roporl unliI llo suppIy is slabiIizod, and a pIan
is dovoIopod for 'incroasing llo onlry of llo roIovanl producl, unIoss lloro
is a doIiboralo roslriclion poIicy. Il vas dolorminod llal in sucl a caso, llo
impIicalions of llo slorlago of llo roIovanl producl slouId bo prosonlod
lo llo docision-makors.
260
Tlo modoI ilsoIf is basod on figuros of llo goods
lransporlod via llo Iand crossings and informalion aboul IocaI crops, and
il is caIcuIalod oacl vook for food producls, animaI foods, and fuoI. Tlo
oconomic modoI is as foIIovs:
- DaiIy consumplion for llo producl por capila sizo of llo
popuIalion = oslimalod daiIy consumplion for llo Gaza Slrip
- Islimalod suppIy in llo Gaza Slrip on day X + amounl llal onlorod
via crossings + |addilionaI figurosj - oslimalod daiIy consumplion
= suppIy assossmonl
- SuppIy / oslimalod daiIy consumplion = suppIy IovoI
D.ic! 31.10.2010, supr. nolo 217.
Tlo Coordinalor of Govornmonl Aclivilios in llo Torrilorios
omplasizod llal llis is moroIy a supporl modoI for carrying oul llo
moniloring procoss, and nol a modoI for dolormining vlal onlors llo
Gaza Slrip on a day lo day basis.
261
Rogarding llo aforomonlionod cIaims of food insocurily in llo Gaza
Slrip, llo Coordinalor of Govornmonl Aclivilios in llo Torrilorios said llal
in mosl casos llo roquosls sonl by llo IaIoslinian Aullorily corrospond
vill COGATs assossmonls rogarding llo popuIalions noods.
262
Dospilo
llis, lloro is a Iargo disparily bolvoon llo informalion providod by llo
lumanilarian organizalions al vork moolings rogarding llo coordinalion
of aid lo llo Gaza Slrip and lloir subsoquonl docIaralions lo llo modia.
263

Tlo Coordinalor of Govornmonl Aclivilios in llo Torrilorios parlicuIarIy
poinlod oul llal a significanl amounl of consumplion in llo Gaza Slrip is
basod on llo suppIy of crops grovn in llo Gaza Slrip ilsoIf, and IsraoIs
Iand crossings poIicy las no offocl on llo consumplion of lloso crops.
264

Tlo Coordinalor of Govornmonl Aclivilios in llo Torrilorios ropoalodIy
and cIoarIy slalod llal lloro is no slarvalion in llo Gaza Slrip. Will
rogard lo modicino and modicaI suppIios, lo roomplasizod llal lloro is
no disparily bolvoon llo roquosls rocoivod from llo IaIoslinian Aullorily
and llo producls approvod for onlry inlo llo Gaza Slrip, oxcopl for modicaI
suppIios llal aIso lavo miIilary usos (sucl as radialion dovicos). Tlo onlry
of lloso suppIios is subjocl lo a spociaI syslom of approvaI boforo lloy aro
brougll inlo llo Gaza Slrip.
265
Mctcmcni c| pcrscns. Tlo oslabIislod principIos pormil movomonl
bolvoon IsraoI and llo Gaza Slrip onIy in oxcoplionaI lumanilarian casos,
vill an omplasis on urgonl modicaI casos. Iacl roquosl in llis rogard is
oxaminod on ils morils.
266
According lo llo Coordinalor of Govornmonl
Aclivilios in llo Torrilorios, four oul of ovory fivo roquosls lo rocoivo
pormils for modicaI lroalmonl oulsido llo Gaza Slrip aro granlod.
267
Wlon
sucl an appIicalion is rofusod, llo roason is usuaIIy llal llo appIicanl las
a socurily background llal doos nol aIIov llom lo onlor IsraoI or llal llo
IaIoslinian Aullorily, for ils ovn roasons, profors llal porson lo rocoivo
lroalmonl in Gaza or Igypl.
268
262 |!., al 42-43.
263 |!., al 23.
264 |!., al 103.
265 |!., al 105-106.
266 Citi|i.n Pc|ic Rcg.r!ing G.z. Sirip - P.ri A, supr. nolo 52, al 20.
268 |!., al 82
||cciricii .n! |uc|. Tlo principIos dolorminod for llo onlry of
fuoI and oIoclricily, vlicl voro roviovod by llo Supromo Courl in A|-
B.ssicuni t. Primc Minisicr,
269
incIudo llo imposilion of roslriclions on
llo suppIy of fuoI and oIoclricily, villoul larming llo lumanilarian
noods of llo popuIalion. Tlo Coordinalor of Govornmonl Aclivilios in
llo Torrilorios oxpIainod llal llo suppIy of oIoclricily in llo Gaza Slrip
comos from llroo sourcos: IsraoI, Igypl and llo povor slalion in Gaza. In
llo conloxl of impIomonling llo Iand crossings poIicy, il vas rosoIvod lo
mainlain llo oIoclricily suppIy capacily lo llo Gaza Slrip as il vas prior
lo llo rosoIulion of llo MinisloriaI Socurily Commilloo of Soplombor 19,
2007,
270
and nol lo roslricl llo acluaI suppIy of oIoclricily via llo povor
Iinos. Iikoviso, il vas docidod lo mainlain llo suppIy capacily of llo
povor slalion in llo Gaza Slrip by aIIoving in a sufficionl quanlily of
fuoI lo oxlausl llo slalions fuII capacily of oIoclricily produclion and
lo dolormino quolas of fuoI llal vouId mool llo lumanilarian noods of
llo popuIalion (as slalod in A|-B.ssicuni t. Primc Minisicr).
271
Moroovor,
as llo Coordinalor of Govornmonl Aclivilios in llo Torrilorios said, in
praclico, IsraoIi aullorilios aro nol invoIvod al aII in fuoI ordors sinco
lloso aro mado diroclIy bolvoon llo IaIoslinian Aullorily and llo IsraoIi
fuoI companios. Tlo roslriclions on bringing fuoI inlo llo Gaza Slrip llal
voro monlionod in llo loslimonios of llo luman riglls organizalions
voro roslriclions imposod by llo IaIoslinian Aullorily in ordor lo rocoivo
roimbursomonl from llo Hamas.
272
Tlus, for oxampIo, COGAT nolicod
al llo ond of 2009 llal llo suppIy of diosoI lo llo povor slalion in llo
Gaza Slrip lad docroasod lo an oxlonl llal couId causo a roduclion in
llo suppIy of oIoclricily lo llo Gaza Slrip. Wlon COGAT conlaclod llo
IaIoslinian Aullorily in llis rogard, il vas loId llal Hamas lad nol sonl
llo lax paymonls llal il coIIoclod for llo uso of oIoclricily and, lloroforo,
llo IaIoslinian Aullorily docidod lo roduco llo oIoclricily suppIy.
273
Mcnci.r .ciitii. Tlo Coordinalor of Govornmonl Aclivilios in llo
Torrilorios loslifiod llal bocauso of llo concorn llal considorabIo amounls
of monoy brougll inlo llo Gaza Slrip aro usod for lorrorism, llo banks in
IsraoI lavo suspondod lloir vorking roIalionslip vill llo banks in llo
Gaza Slrip. Tloroforo, il vas rosoIvod llal unliI a suilabIo aIlornalivo llal
compIios vill inlornalionaI slandards can bo found, llo Bank of IsraoI
viII bo llo parly llal assisls in roaIizing monolary aclivily. IsraoI aIIovs
269 A|-B.ssicuni caso, supr. nolo 140, al paras. 17-21.
273 |!., al 55.
a fixod amounl of monoy inlo llo Gaza Slrip oacl monll lo pay saIarios
lo llo ompIoyoos of llo IaIoslinian Aullorily, lo pay llo saIarios and
ongoing oxponsos of inlornalionaI organizalions (UNRWA and llo Rod
Cross
274
) al lloir roquosl, and lo lako monoy oul of llo Gaza Slrip al llo
roquosl of llo IaIoslinian Aullorily (surpIus casl llal accumuIalos in llo
bank doposil boxos and/or ropIacomonls for vorn oul biIIs). In addilion,
any ollor individuaI roquosl rocoivod from llo IaIoslinian Aullorily is
roviovod by COGAT.
275
Tlo Coordinalor of Govornmonl Aclivilios in llo Torrilorios aIso
addrossod addilionaI issuos llal llo crossings poIicy is cIaimod lo affocl.
As lo confirmod, llo valor silualion in Gaza las boon bad for yoars, bul
according lo lim, llo poor valor quaIily is llo rosuIl of llousands of
voIIs llal lavo boon iIIogaIIy driIIod.
276
Ho omplasizod llal IsraoI las
nol rofusod lo lransfor oquipmonl for projocls roIaling lo llo mainlonanco
of llo valor syslom. IsraoI suppIios lypoclIorilo lo purify drinking
valor and sovoraI projocls lo improvo llo sovago infraslrucluro aro aIso
undorvay.
277
Moroovor, boforo Hamas look conlroI of llo Gaza Slrip,
IsraoI coordinalod vill llo Unilod Nalions and llo IaIoslinian Aullorily
llo advancomonl of sovoraI lousing projocls in llo Gaza Slrip, bul lloso
projocls voro sloppod bocauso of llo incroaso in llo numbor of missiIo
allacks and losliIilios.
278
Tlo Coordinalor of Govornmonl Aclivilios in llo
Torrilorios oxpIainod llal Hamas is llo onlily llal is rosponsibIo for llo
oconomic silualion in llo Gaza Slrip, bocauso il closo llo pall of lorrorism
llal provonls llo dovoIopmonl of oconomic roIalions, sucl as lloso llal
IsraoI las vill llo IaIoslinian Aullorily.
279
74. In sum, llo main disagroomonl bolvoon IsraoI and llo luman
riglls and lumanilarian organizalions is nol vlollor llo Iand crossings
poIicy (and, as oxpIainod abovo, indiroclIy llo navaI bIockado) impacls
on llo popuIalion of llo Gaza Slrip sinco IsraoI rocognizos llo facl llal ils
poIicy las an offocl on llo civiIian popuIalion in Gaza. Tlo disagroomonl
concorns llo quoslion vlollor llo ruIos of inlornalionaI lumanilarian Iav
lavo boon vioIalod. Various luman riglls and lumanilarian organizalions
arguo llal IsraoI las vioIalod llo ruIos of inlornalionaI lumanilarian Iav,
274 Il slouId bo monlionod llal according lo llo maloriaI submillod by llo Govornmonl
Aclivily Coordinalor in llo Torrilorios sinco May 2009 llo Rod Cross did nol roquosl llo
onlranco of funds inlo llo Gaza Slrip for ils aclivily. Soo Citi|i.n Pc|ic Rcg.r!ing G.z. Sirip
- P.ri A, supr. nolo 52, al 25.
275 |!., al 23-25.
277 |!., al 104.
278 |!.
279 |!., al 59, 71.
vloroas IsraoI loIds llo posilion llal il is acling in accordanco vill llo
ruIos of inlornalionaI Iav and llal il, in facl, las lakon oxcoplionaI slops in
ordor lo compIy vill lloso obIigalions. Tloroforo, llo anaIysis viII nov
lurn lo considor llo quoslion vlollor inlornalionaI lumanilarian Iav las
boon vioIalod.
!"# (5&"3/3)3&' &* 6)+5-3'4 )"# %3-3.3+' (&(7.+)3&'
75. As slalod abovo, arlicIo 102(a) of llo San Romo ManuaI prolibils
llo imposilion of a navaI bIockado if ils soIo purposo is lo slarvo llo
civiIian popuIalion or provonl llo suppIy of ollor objocls ossonliaI for
ils survivaI. Tlis ruIo of cuslomary inlornalionaI Iav is aIso rofIoclod
in llo miIilary manuaIs of sovoraI counlrios,
280
and in IogaI
281
and
acadomic
282
Iiloraluro. Anollor cuslomary ruIo llal imposos a prolibilion
on slarvalion is found in arlicIo 54(1) of llo Iirsl AddilionaI IrolocoI lo
llo Gonova Convonlion, vlicl providos llal 'Slarvalion of civiIians as a
mollod of varfaro is prolibilod. Tlis ruIo appIios lo oporalions on Iand
as voII as lloso al soa. Hovovor, in rospocl of slarvalion, llo vording in
RuIo 102(a) is moro Iimilod in scopo llan llo gonoraI prolibilion rofIoclod
in arlicIo 54(1). Prim. |.cic, ono migll concIudo llal as Iong as slarvalion
is llo consoquonco of a navaI bIockado bul nol ils soIo purposo, llon il
is nol prolibilod pursuanl lo inlornalionaI lumanilarian Iav. Hovovor,
insofar as a civiIian popuIalion is acluaIIy slarvod as a rosuIl of a navaI
bIockado, llo parly imposing llo bIockado is roquirod lo considor llis
rosuIl in llo proporlionaIily anaIysis roquirod by arlicIo 102(b) of llo San
Romo ManuaI.
283
Il slouId aIso bo nolod llal llo Harvard Air and MissiIo
Warfaro ManuaI roconlIy proposod sIigllIy amonding llo vording of
arlicIo 102(a), so llal llo imposilion of a navaI bIockado viII bo prolibilod
if llo slarvalion of llo civiIian popuIalion is ils soIo or 'main purposo.
284
76. Tloro is no formaI dofinilion of llo concopl of 'slarvalion in
inlornalionaI lumanilarian Iav. Hovovor, llo lorm 'causing slarvalion
slouId nol bo undorslood lo simpIy causo lungor. Tlo Commonlary on
arlicIo 54(1) of llo Iirsl AddilionaI IrolocoI slalos llal llo uso of slarvalion
as a moans of varfaro impIios '. lo provoko il doIiboraloIy, causing llo
280 Soo U.S. N.t, 1|c Ccmm.n!crs H.n!occ|, supr. nolo 92, al paras. 7.7.2.5, 1|c UK M.nu.|,
supr. nolo 113, al 64, para. 13.74, 1|c C.n.!i.n M.nu.|, supr. nolo 113, al 8-12, para. (a)
(1)850, 1|c Gcrm.n M.nu.|, supr. nolo 113, al 470, para. 1051.
281 Hcinisc|c| tcn Hcincgg, 5-$?# 6@ A$B3, supr. nolo 85, al 217.
282 E"-1$,"-F 0/, :*-3B9$ *; /*1$"#"$",1, supr. nolo 86, al 137-138, |nicrn.iicn.|
Hum.nii.ri.n I.u H.n!occ|, supr. nolo 113, al 470-471 and )&,,-F 0/, :*-$,.8*&%&'
6%H *; 2&.,3 :*-;#"9$, supr. nolo 114.
283 Soo paras. 87-97 boIov.
284 1|c Air .n! Missi|c W.r|.rc M.nu.|, supr. nolo 115, al 296, arl. 157(a).
popuIalion lo suffor lungor, parlicuIarIy by dopriving il of ils sourcos of
food or of suppIios and llal '. slarvalion is roforrod lo loro as a mollod
of varfaro, i.o., as a voapon lo anniliIalo or voakon llo popuIalion.
285

Tlo Commission found no ovidonco in llo considorabIo amounl of
maloriaI llal vas submillod lo il, incIuding llo maloriaI submillod by
luman riglls organizalions, lo llo offocl llal IsraoI is lrying lo doprivo
llo popuIalion of llo Gaza Slrip of food or lo anniliIalo or voakon llo
popuIalion by moans of slarvalion.
Il is imporlanl lo omplasizo llal lumanilarian and luman riglls
organizalions llomsoIvos doscribo llo silualion in llo Gaza Slrip as a
silualion of 'food insocurily (i.o., llo Iack of plysicaI and oconomic accoss lo
suslainabIo food sourcos), and nol as 'slarvalion (a doIiboralo doprivalion
of food, vlicl is inlondod lo voakon or anniliIalo llo popuIalion). Tlus,
llo Coordinalor of Govornmonl Aclivilios in llo Torrilorios - llo mosl
sonior officiaI IsraoIi aullorily rosponsibIo for IsraoIs compIianco vill
ils lumanilarian obIigalions vis--vis llo Gaza Slrip, vlo is in conslanl
conlacl vill llo IaIoslinian Aullorily and llo IocaI and inlornalionaI
lumanilarian and luman riglls organizalions oporaling in llo Gaza
Slrip - aIso loslifiod unoquivocaIIy boforo llo Commission llal no ono las
ovor slalod lo lim llal llo popuIalion of llo Gaza Slrip is 'slarving.
286
In a
Iollor sonl lo llo Commission on Augusl 26, 2010, llo organizalion Gisla
slalod llal '|ijndood, il doos appoar llal ovon during llo fIoliIIa ovonls
lloro vas onougl food in llo Gaza Slrip, bul llo conlinuing cIosuro
soriousIy impairod llo oconomic abiIily of many poopIo lo purclaso food
producls.
287
Tlo roprosonlalivos of Gisla and Ilysicians for Human
Riglls confirmod in lloir loslimonios boforo llo Commission llal during
llo roIovanl poriod, lloro vas a sufficionl quanlily of food in llo Gaza
Slrip, and llal llo probIom vas mainIy oconomic, i.o., an inabiIily of llo
popuIalion lo purclaso llis food.
288
77. Tloro is no doubl llal, oconomic varfaro impacls on a bIockadod
popuIalion, and al Ioasl in lloory las llo polonliaI lo causo slarvalion.
As arlicIo 103 of llo San Romo ManuaI slalos, vlon llo popuIalion
doos nol rocoivo an adoqualo suppIy of food and ollor objocls ossonliaI
285 Soo ICRC Commonlary on IrolocoIs AddilionaI lo llo Gonova Convonlions of Aug. 12,
1949, and RoIaling lo llo Iroloclion of Viclims in Armod ConfIicls (IrolocoI I), }un. 8, 1977
|loroinaflor |CRC Ccmmcni.r cn Prciccc| | c| i|c Gcnct. Ccntcniicnsj, al paras. 2089, 2090.
287 Soo Iollor from Gisla - IogaI Conlor for Iroodom of Movomonl lo Tlo IubIic Commission
lo Ixamino llo Marilimo Incidonl of May 31, 2010 (Aug. 26, 2010).
288 Transcripl of sossion no. 12 "Toslimony of Gisla Roprosonlalivos" (Tamar IoIdman & Sari
Bosli) (Ocl. 13, 2010), al 32 |loroinaflor 1csiimcn c| Gis|. Rcprcscni.iitcsj, 1csiimcn c|
P|sici.ns |cr Hum.n Rig|is, supr. nolo 244, al 3.
for ils survivaI, a duly arisos lo provido llo civiIian popuIalion vill
aid consignmonls
289
(vill rogard lo an occupiod lorrilory, an idonlicaI
obIigalion is found in arlicIo 59 of llo Iourll Gonova Convonlion).
290
As
nolod, IsraoIs posilion is llal lloro is no inlonlion lo causo 'slarvalion
of llo popuIalion of llo Gaza Slrip and il is making significanl offorls
in ordor lo provonl il. Tlo maloriaI boforo llo Commission slovs llal
llo IDI is vorking in cIoso coIIaboralion vill llo IaIoslinian Aullorily,
luman riglls organizalions, and llo inlornalionaI communily in ordor lo
provonl llis oulcomo.
291
Tlo roslriclions imposod by IsraoI considorod llis
lumanilarian obIigalion and voro pIannod procisoIy in ordor lo provonl a
silualion of 'slarvalion. 'Iood insocurily doos nol oqualo lo 'slarvalion.
In sum, llo slops lakon in llis rogard by IsraoI aro consislonl vill
cuslomary inlornalionaI Iav as providod in arlicIos 102(a) and 103 of llo
San Romo ManuaI.
!"# (5&-363&' &* &/A#%)6 #66#')3+. *&5 )"# 675-3-+. &* )"# %3-3.3+'
(&(7.+)3&'
78. Tlo socond obIigalion oxprossod in arlicIo 102 of llo San Romo
ManuaI is nol lo doprivo llo civiIian popuIalion of 'objocls ossonliaI
for ils survivaI. Indood, lloro is no oxlauslivo Iisl of vlal conslilulos
objocls ossonliaI for llo popuIalions survivaI, bul various convonlions
slalo llal llis oxprossion may incIudo 'foodsluffs, agricuIluraI aroas for
llo produclion of foodsluffs, crops, Iivoslock, drinking valor inslaIIalions
and suppIios and irrigalion vorks,
292
and 'cIolling, bodding, moans of
289 |CRC Ccmmcni.r cn Prciccc| | c| i|c Gcnct. Ccntcniicns, supr. nolo 285, al para. 2095:
"Il slouId bo omplasizod llal llo objocl of a bIockado is lo doprivo llo advorsary of
suppIios noodod lo conducl losliIilios, and nol lo slarvo civiIians. UnforlunaloIy il is a
voII-knovn facl llal aII loo oflon civiIians, and abovo aII cliIdron, suffor mosl as a rosuIl.
If llo offocls of llo bIockado Ioad lo sucl rosuIls, roforonco slouId bo mado lo ArlicIo 70
of llo IrolocoI ' (RoIiof aclions), ' vlicl providos llal roIiof aclions slouId bo undorlakon
vlon llo civiIian popuIalion is nol adoqualoIy providod vill food and modicaI suppIios,
cIolling, bodding, moans of sloIlor and ollor suppIios ossonliaI lo ils survivaI. Sucl
aclions may bo vory oxlonsivo.
290 Soo arl. 59 of llo Iourll Gonova Convonlion vlicl providos llal:
"If llo vloIo or parl of llo popuIalion of an occupiod lorrilory is inadoqualoIy suppIiod, llo
Occupying Iovor slaII agroo lo roIiof sclomos on bolaIf of llo said popuIalion, and slaII
faciIilalo llom by aII llo moans al ils disposaI. Sucl sclomos, vlicl may bo undorlakon
oillor by Slalos or by imparliaI lumanilarian organizalions sucl as llo InlornalionaI
Commilloo of llo Rod Cross, slaII consisl, in parlicuIar, of llo provision of consignmonls
of foodsluffs, modicaI suppIios and cIolling. AII Conlracling Iarlios slaII pormil llo froo
passago of lloso consignmonls and slaII guaranloo lloir proloclion."
292 ArlicIo 54(2), IrolocoIs AddilionaI lo llo Gonova Convonlions of 12 Augusl 1949,
and RoIaling lo llo Iroloclion of Viclims in Armod ConfIicls (IrolocoI I), 8 }uno 1977
sloIlor. and objocls nocossary for roIigious vorslip.
293
Moroovor, in
HC} 201/09 P|sici.ns |cr Hum.n Rig|is t. Primc Minisicr and in HC}
248/09 Gis|. - Icg.| Ccnicr |cr Ircc!cm c| Mctcmcni t. Minisicr c| Dc|cnsc294
(joinod), in vlicl llo Supromo Courl of IsraoI considorod llo lumanilarian
obIigalions of llo IDI during Oporalion Casl Ioad, llo Courl rocognizod
llal inlornalionaI Iav roquirod llo civiIian popuIalion lo rocoivo accoss lo
induslriaI diosoI for oporaling llo IocaI povor slalion in Gaza, as voII as
addilionaI lumanilarian roquiromonls, sucl as cooking gas, diosoI oiI for
lransporl, valor, food and modicalions.
295

79. Humanilarian organizalions and luman riglls organizalions
lavo raisod concorns rogarding llo sufficioncy of sucl ossonliaI objocls in
llo Gaza Slrip, incIuding llo Iack and moans of sloIlor. Will rogard lo llo
provision of sloIlor, IsraoI las indood imposod roslriclions on llo imporl
of conslruclion maloriaIs inlo llo Gaza Slrip and il cIosoIy suporvisos llo
lransfor of lloso maloriaIs. Tloso roslriclions aro pul in pIaco bocauso of
llo risk llal llo idonlifiod maloriaIs may bo usod for miIilary purposos,
sinco llo inloIIigonco informalion indicalos llal llo Hamas usos lloso
maloriaIs oxlonsivoIy in ordor lo forlify buiIdings and lunnoIs.
296
Il is cIoar
llal llo roslriclions voro nol imposod in ordor lo provonl llo uso of lloso
maloriaIs by llo civiIian popuIalion of llo Gaza Slrip. Moroovor, IsraoI
is ovon vorking in fuII cooporalion vill llo inlornalionaI communily in
ordor lo aIIov llo passago of buiIding maloriaIs for various projocls llal
aro suporvisod and approvod by il, in a mannor llal is consislonl vill ils
duly lo suppIy aid lo llo civiIian popuIalion.
297
Indood, as doscribod abovo, IsraoI imposos various roslriclions
on llo suppIy of diosoI and fuoI bul according lo llo loslimony of llo
Coordinalor of Govornmonl Aclivilios in llo Torrilorios, nol on llo suppIy
of oIoclricily. Hovovor, diosoI oiI is noodod in ordor lo oporalo llo povor
pIanl in Gaza for llo suppIy of oIoclricily. Hovovor, llo Supromo Courl las
dolorminod, according lo llo ovidonco brougll boforo il in A|-B.ssicuni t.
Primc Minisicr, llal dospilo lloso roslriclions, and ovon if llo roslriclions
voro imposod on llo suppIy of oIoclricily, IsraoI is in compIianco vill
ils lumanilarian obIigalions. In A|-B.ssicuni t. Primc Minisicr llo Courl
said llal llo roIovanl IaIoslinian aullorilios lavo mado cIoar 'lloy lavo
llo capabiIily lo carry oul Ioad roduclions if Iimils aro pIacod on llo
|loroinaflor A!!iiicn.| Prciccc| |j.
293 |!., al arl. 69.
294 1csiimcn c| P|sici.ns |cr Hum.n Rig|is, supr. nolo 244, al 22, para. 27.
295 |!., al para. 26.
296 ||CC rcpcri (}un. 14, 2010), supr. nolo 83.
povor Iinos, and lloy lavo mado acluaI uso of llis capabiIily in llo pasl.
298

Moroovor, Iiko many issuos llal ariso vill rogard lo llo lumanilarian
silualion in llo Gaza Slrip, il slouId bo romomborod llal llo scopo of llo
oIoclricily suppIy is aIso affoclod by llo roIalions bolvoon llo IaIoslinian
Aullorily and llo Hamas, sinco a significanl parl of llo Gaza Slrips
oIoclricily noods is nol suppIiod by IsraoI.
80. Tloro is lloroforo no ovidonco boforo llo Commission llal IsraoI
is donying objocls ossonliaI for llo survivaI of llo civiIian popuIalion,
and, lloroforo, lloro is no basis for llo concIusion llal IsraoI is in vioIalion
of inlornalionaI lumanilarian Iav in llis rogard. On llo conlrary,
considorabIo ovidonco vas prosonlod lo llo Commission lo slov llal
IsraoI aIIovs llo passago of objocls ossonliaI for llo survivaI of llo civiIian
popuIalion and llal il providos lumanilarian aid as roquirod by llo
ruIos of inlornalionaI lumanilarian Iav in lloso aroas llal luman riglls
organizalions idonlify as a sourco of concorn.
IsraoI las lloroforo aclod pursuanl lo llo principIos of cuslomary
inlornalionaI lumanilarian Iav vill rogard lo llo imposilion of llo
navaI bIockado, as slalod in arlicIo 102(a) and arlicIo 103 of llo San Romo
ManuaI.
B+66+4# &* 8#13%+. 67((.3#6
81. Anollor voII rocognizod roquiromonl of cuslomary inlornalionaI
lumanilarian Iav is lo aIIov llo passago of modicaI oquipmonl, subjocl,
lovovor, lo llo rigll of llo bIockading parly lo proscribo loclnicaI
arrangomonls, incIuding a soarcl, undor vlicl sucl passago is pormillod
299

(il slouId bo nolod llal on board somo of llo vossoIs in llo fIoliIIa lloro
voro somo modicaI suppIios as ovidonco of llo lumanilarian naluro of
llo fIoliIIa).
300
82. Humanilarian and luman riglls organizalions raisod a concorn
rogarding llo adoquacy of llo modicaI suppIios and llo modicaI sorvicos in
llo Gaza Slrip. Hovovor, in llo compIox silualion llal provaiIs in llo Gaza
Slrip, il is nol nocossariIy IsraoI llal is rosponsibIo for any slorlagos. In llis
conloxl, il slouId bo nolod llal according lo llo roporl of llo InlornalionaI
Commilloo of llo Rod Cross: 'Slocks of ossonliaI modicaI suppIios lavo
roaclod an aII-limo Iov bocauso of a slandsliII in cooporalion bolvoon
IaIoslinian aullorilios in RamaIIal and Gaza.
301
Moroovor, corlain lypos
298 A|-B.ssicuni caso, supr. nolo 140, al para. 18.
299 Soo S.n Rcmc M.nu.|, supr. nolo 110, ruIo 104.
of suppIios aro IogilimaloIy roslriclod by IsraoI for socurily roasons, sucl
as oplicaI oquipmonl, vlicl, in addilion lo ils ordinary uso, can bo usod
for miIilary purposos.
302
No ovidonco vas prosonlod boforo llo commilloo
lo llo offocl llal IsraoI provonls llo passago of modicaI suppIios aparl
from lloso incIudod in llo Iisl of maloriaIs vloso onlry inlo llo Gaza
Slrip is prolibilod for socurily roasons.
303
According lo llo Coordinalor of
Govornmonl Aclivilios in llo Torrilorios, somolimos a roquosl lo lransfor
compIox modicaI oquipmonl roquiros carofuI oxaminalion, vlicl can
bo limo-consuming, and of courso il is proforabIo llal llo Iongll of limo
roquirod bo as slorl as possibIo. Hovovor, from llo loslimony of llo
Coordinalor of Govornmonl Aclivilios in llo Torrilorios, il can aIso bo
soon llal vlon llo roIovanl IsraoIi aullorilios aro nolifiod of a slorlago of
any modicaI suppIios, lloro is an organizod syslom for ropIonisling lloso
suppIios.
304
83. In a pross roIoaso on }uno 14, 2010, llo InlornalionaI Commilloo
of llo Rod Cross indicalod lov a slorlago of corlain maloriaIs migll
rosuIl in a dolorioralion in llo mainlonanco of modicaI suppIios, and
as a rosuIl, lo roquosls from many inlabilanls of llo Gaza Slrip lo sook
modicaI lroalmonl in IsraoI.
305
IsraoI las indood aIIovod a subslanliaI
302 1csiimcn c| Gctcrnmcni Aciitii Cccr!in.icr in i|c 1crriicrics, supr. nolo 162, al 105,
1csiimcn c| P|sici.ns |cr Hum.n Rig|is, supr. nolo 244, al 7.
D.ic! 31.10.2010, supr. nolo 217, Appondix A, Moro accuraloIy, llo roslriclions slom from
llroo sourcos - llo inslruclions of llo IsraoIi Minislry of HoaIll, llo inslruclions of llo
IsraoIi Minislry of Induslry and Commorco, and llo suporvisory ordors on dofonso oxporl.
In llis conloxl soo Rc|crcncc ic C|.ims M.!c o P|sici.ns |cr Hum.n Rig|is ic i|c Ccmmissicn
ic |x.minc i|c M.riiimc |nci!cni (opinion by Govornmonl Aclivily Coordinalor in llo
Torrilorios, }an. 6, 2011), markod by llo Commission as oxlibil 166 |loroinaflor Rcspcnsc
o Gctcrnmcni Aciitii Cccr!in.icr in i|c 1crriicrics ic C|.ims M.!c o P|sici.ns |cr Hum.n
Rig|isj.
304 1csiimcn c| Gctcrnmcni Aciitii Cccr!in.icr in i|c 1crriicrics, supr. nolo 162, al 28, Il
slouId bo monlionod llal llo documonl lransforrod by llo Ilysicians for Human
Riglls Organizalion lo llo Commission on Nov. 7, 2010 vas appondod vill a Iisl of
modicaI oquipmonl vloso onlranco vas nol approvod or vas doIayod (soo Iollor from
llo Ilysicians for Human Riglls Organizalion lo llo TurkoI Commission lilIod Ic||cu
Up Rcpcri ic 1csiimcn c| P|sici.ns |cr Hum.n Rig|is ic i|c 1ur|c| Ccmmissicn (Nov. 7,
2010), found in llo foIdor markod by llo Commission as oxlibil 165. Irom llo roforonco
submillod by llo Govornmonl Aclivily Coordinalor lo llis mallor il sooms llal llo
majorily of llo roquosls aro unknovn lo llo Gaza Dislricl Coordinalion Offico. As lo llo
roquosls vlicl llo Dislricl Coordinalion Offico vas abIo lo lrack dovn il vas monlionod
llal of llo iniliaI roquosl, vlicl incIudod 21 iloms of compIox modicaI oquipmonl vlicl
roquirod a molicuIous oxaminalion by llo socurily forcos, 18 iloms voro approvod and
lloro vas a doIay in lransforring llroo iloms duo lo a slorlago of lloso iloms (Rcspcnsc
o Gctcrnmcni Aciitii Cccr!in.icr in i|c 1crriicrics ic C|.ims M.!c o P|sici.ns |cr Hum.n
Rig|is).
numbor of inlabilanls of llo Gaza Slrip accoss lo llo loaIll syslom in
IsraoI for various roasons, incIuding llo lisloricaI connoclion bolvoon
llo Gaza Slrip and IsraoI (for yoars boforo llo Iand crossings poIicy and
llo navaI bIockado voro inlroducod, llo inlabilanls of llo Gaza Slrip
voro pormillod lo consuIl oxporls and rocoivo advancod lroalmonls in
llo IsraoIi loaIll syslom). Tlo ovidonco aIso slovs llal llo numbor of
porsons roquosling lo Ioavo llo Gaza Slrip in ordor lo rocoivo modicaI
lroalmonl las incroasod during llo poriod sinco llo Iand bordor crossings
voro inlroducod. Tlis is apparonlIy llo rosuIl of Igypl inlroducing a
roslriclivo bordor poIicy al llo Rafal crossing, vlicl lradilionaIIy vas
aIso usod lo oxil llo Gaza Slrip (in llis conloxl, il slouId aIso bo nolod llal
llo COGAT slalod llal aclivily al llo Rafal crossing vas significanlIy
oxpandod aflor Oporalion 'Casl Ioad').
306
In llis rogard il slouId bo nolod
llal ovon aflor llis crossing vas oponod on }uno 1, 2010, llo numbor of
porsons roquosling lroalmonl in llo IsraoIi loaIll syslom las romainod
ligl, apparonlIy bocauso many palionls profor il.
307
84. Sorling llrougl llo ovidonco of vlollor IsraoI is adoqualoIy
mooling ils lumanilarian Iav obIigalions in llis aroa is in many rospocls
an oxorciso in lrying lo sorl oul slalislics. Tlo IsraoIi aullorilios prosonlod
dolaiIod slalislics rogarding llo numbor of inlabilanls of llo Gaza Slrip
llal aro pormillod lo oxil in ordor lo rocoivo modicaI lroalmonl. Tlus, for
oxampIo, according lo llo maloriaI llal vas prosonlod lo llo Commission,
in 2009, IsraoI aIIovod 11,036 palionls and lloir famiIy mombors lo oxil llo
Gaza Slrip lo rocoivo modicaI lroalmonl.
308
Il is imporlanl lo poinl oul llal
86 of llo oxil appIicalions llal voro submillod during llis poriod voro
approvod, vloroas of llo romaining 14, aboul 10 voro cancoIIod by llo
IaIoslinian Aullorily for ils ovn roasons.
309
In lloir loslimony boforo llo
Commission, roprosonlalivos of Ilysicians for Human Riglls aIso focusod
on doIays in procossing appIicalions lo rocoivo modicaI lroalmonl in IsraoI,
and parlicuIarIy llo sufforing causod lo lloso invoIvod. According lo
lloir loslimony, approximaloIy 70-80 of llo appIicalions lako bolvoon
oigll vooks lo llroo monlls lo bo procossod, and in many casos modicaI
lroalmonl is provonlod as a rosuIl, ovon if a pormil is approvod al llo ond
of llo procoss.
310
Il slouId bo nolod llal, obviousIy, doIays in llo approvaI
procoss llal affocl llo loaIll of llo palionl slouId bo avoidod vlorovor
306 1csiimcn c| Gctcrnmcni Aciitii Cccr!in.icr in i|c 1crriicrics, supr. nolo 162, al 60-61,
Citi|i.n Pc|ic Rcg.r!ing G.z. Sirip - Rcg.r!ing i|c C|.ims c| Hum.n Rig|is Org.niz.iicns,
D.ic! 31.10.2010, supr. nolo 217, al 20-26.
307 1csiimcn c| P|sici.ns |cr Hum.n Rig|is, supr. nolo 244, al 14.
309 |!., al 11.
310 1csiimcn c| P|sici.ns |cr Hum.n Rig|is, supr. nolo 244, al 7.
possibIo. Hovovor, il musl aIso bo romomborod llal mosl of llo roasons
for llo doIays invoIvo socurily issuos. Il slouId aIso bo undorslood llal
a IaIoslinian palionl sooking lo oxil for modicaI lroalmonl undorgoos
a compIox procoss boforo llo roquosl roaclos llo Gaza Slrip DCO. In
gonoraI, llo palionl oblains a roforraI from a IaIoslinian lospilaI, vlicl
lo submils lo llo roprosonlalivo of llo IaIoslinian Minislry of HoaIll in
llo Gaza Slrip, vlo lransfors il lo llo Minislry of HoaIll in RamaIIal
for roviov. Tlo IaIoslinian Minislry of HoaIll lransfors llo roforraI lo
llo IaIoslinian offico vlicl coordinalos llo lroalmonl vill a lospilaI in
IsraoI or llo Wosl Bank. OnIy al llis slago is llo roquosl lransforrod lo llo
Gaza Slrip DCO, vlo oxaminos llo roquosl for socurily issuos. Tlus, a
significanl parl of llo procoss is nol conduclod by IsraoI al aII.
311
Wlal is
cruciaI in lorms of mooling inlornalionaI lumanilarian Iav obIigalions in
llis rogard is llal lloro is a spocificaIIy oslabIislod syslom pul in pIaco by
llo IsraoIi aullorily llal sorvos lo mool lumanilarian noods vliIo sooking
lo addross llo socurily concorns.
85. An anaIysis of llo slalo of llo loaIll syslom in llo Gaza Slrip
slovs llal a dislinclion slouId bo mado bolvoon llo cxisicncc of a
loaIll caro syslom and llo si.n!.r! of modicaI caro. Tlus, for oxampIo, a
roporl of ono of llo UN agoncios (llo UN Officor for llo Coordinalion of
Humanilarian Affairs) slalod:
'Tlo bIockado, llo inlornaI IaIoslinian divisions and llo Casl
Ioad offonsivo lavo undorminod llo abiIily of llo loaIll
syslom in Gaza lo funclion proporIy. As a rosuIl, u|i|c mcsi
scrticcs .rc .t.i|.o|c ic i|c pcpu|.iicn .n! i|crc ucrc nc cuiorc.|s c|
ccmmunic.o|c !isc.scs, i|crc |.s occn .n ctcr.|| !cc|inc in i|c u.|ii
c| |c.|i| scrticcs prcti!c! ic i|c pcpu|.iicn.
312
|omplasis addodj
86. Indood, as ovidonl from llo loslimony of Ilysicians for Human
Riglls, significanl claIIongos faco llo loaIll syslom in llo Gaza Slrip.
Hovovor, lloso claIIongos aro nol llo soIo rosponsibiIily of IsraoI. Il slouId
aIso bo nolod llal, ovon in llis rogard, IsraoI is acling in cooporalion vill
llo IaIoslinian Aullorily and llo inlornalionaI communily in ordor lo
minimizo llo probIoms. Hovovor, IsraoI slouId conlinuo in llo fuluro
lo oxamino vlollor il is possibIo lo improvo llo curronl posilion, so llal
llo lumanilarian noods of llo inlabilanls of llo Gaza Slrip viII bo fuIIy
addrossod.
D.ic! 31.10.2010, supr. nolo 217, al 22.
312 Soo Ccnsc|i!.ic! Appc.|, supr. nolo 219, al 26
Tlo Commission las roaclod llo concIusion llal IsraoI is compIying
vill ils obIigalions pursuanl lo inlornalionaI lumanilarian Iav undor
arlicIo 104 of llo San Romo ManuaI for llo passago of modicaI suppIios
during a navaI bIockado. Il slouId bo omplasizod llal any passago of
modicaI suppIios lo llo Gaza Slrip by soa vouId bo possibIo by llo mollod
of lransporling llom via Asldod porl and llo Iand bordor crossings.
!"# 83.3)+5C +1-+')+4# &* )"# '+-+. /.&%0+1# -#5676 "+58 %+76#1
)& )"# %3-3.3+' (&(7.+)3&'
87. According lo arlicIo 102(b) of llo San Romo ManuaI, llo damago
causod or oxpoclod bo causod lo llo civiIian popuIalion slouId bo
considorod in roIalion lo llo dirocl and concrolo miIilary advanlago
anlicipalod from llo imposilion of a navaI bIockado.
313
Tlis principIo
is usuaIIy caIIod llo 'principIo of proporlionaIily.
314
In llis conloxl,
groal caro musl bo lakon in ils appIicalion. Tlo obIigalion is nol lo
causo oxcossivo damago in roIalion lo llo concrolo and dirocl miIilary
advanlago anlicipalod from llo bIockado.
315
In llal conloxl llo lorm
oxcossivo las boon suggoslod lo moan llo disproporlion is cIoarIy
discornabIo.
316
Tlo facl llal considorabIo damago las boon causod doos
nol nocossariIy moan llal llo damago is 'oxcossivo. Tlo vord 'oxcossivo
doos nol rofor lo an absoIulo concopl and il is aIvays moasurod 'in Iigll of
llo miIilary advanlago llal llo allackor anlicipalos lo allain llrougl llo
allack.
317
A significanl miIilary advanlago can juslify significanl damago,
vloroas a marginaI advanlago viII nol.
318
88. In lis loslimony boforo llo Commission, llo MiIilary Advocalo-
GonoraI oxprossod doubl aboul llo cuslomary slalus of llis ruIo aIllougl
lo aIso indicalod llal IsraoI impIomonls il.
319
Hovovor, Iiko many of llo
313 Soo aIso E"-1$,"-F 0/, :*-3B9$ *; /*1$"#"$",1, supr. nolo 86, al 138, in appIying llal
losl lo slalos:
"in accordanco vill llo gonoraI (cuslomary Iav) principIo of proporlionaIily, llo oxpoclod
injury lo civiIians in llo vako of a bIockado musl nol bo oxcossivo in roIalion lo llo miIilary
advanlago anlicipalod (and, consoquonlIy, llal a bIockado musl nol lavo llo slarvalion of
civiIians as ils soIo purposo".
314 S.n Rcmc M.nu.|, supr. nolo 110, ruIo 102(b) and S.n Rcmc |xp|.n.iicn, supr. nolo 110, al
179 paras. 102.3-4.
315 1|c Air .n! Missi|c W.r|.rc M.nu.|, supr. nolo 115, al 297.
316 E"-1$,"-F 0/, :*-3B9$ *; /*1$"#"$"$,1, supr. nolo 86, al 120.
317 1|c Air .n! Missi|c W.r|.rc M.nu.|, supr. nolo 115, al 92.
318 |!.
319 Mi|ii.r A!tcc.ic-Gcncr.|s icsiimcn, supr. nolo 98, al 54. In llo posilion papor submillod
by llo MAG, il vas slalod moro oxprossIy llal llo principIo of proporlionaIily in llo San
Romo ManuaI is nol cuslomary inlornalionaI Iav bul llal llis ruIo is an oxampIo of llo
progrossivo dovoIopmonls in llo San Romo ManuaI, soo MAG pcsiiicn p.pcr, supr. nolo 1.
provisions of llo San Romo ManuaI, llis ruIo las boon adoplod in various
miIilary manuaIs,
320
inlornalionaI lumanilarian Iav loxls
321
and ollor
IogaI Iiloraluro.
322
Tlo principIo las aIso boon adoplod by llo Harvard Air
and MissiIo Warfaro ManuaI of 2009.
323
Humanilarian and luman riglls
organizalions lavo aIso addrossod llo offocl of llo navaI bIockado on llo
civiIian popuIalion of llo Gaza Slrip in lorms of ils proporlionaIily.
324
Tlo
Commission lloroforo adopls llo posilion llal arlicIo 102(b) doos indood
rofIocl an obIigalion undor llo ruIos of cuslomary inlornalionaI Iav.
89. As for llo miIilary advanlago, in lis loslimony boforo llo
Commission, llo Cliof of Slaff, Iioulonanl-GonoraI Gabi Aslkonazi, gavo
dolaiIs of llo naluro of llo curronl llroal posod by llo Hamas, vlicl llo
navaI bIockado is inlondod lo counlor. Tlo Cliof of Slaff oxpIainod llal
llo Hamas las lakon advanlago of llo roIalivo caIm aflor Oporalion Casl
Ioad in ordor lo oxpand ils miIilary abiIilios in lvo main aroas: arming
ilsoIf vill rockols and dovoIoping ground-basod capabiIilios.
325
Tlo Cliof
of Slaff vonl on lo oxpIain llal in llo pasl, llo Hamas onIy lad morlars,
llon lloy bougll slorl-rango Qassam missiIos, and loday, il las Iongor-
rango missiIos. Tlo Cliof of Slaff slalod llal rockols, anli-lank missiIos,
anli-aircrafl missiIos, nigll vision oquipmonl and addilionaI miIilary
oquipmonl is smuggIod inlo llo Gaza Slrip via lunnoIs, by Iand, and by
llo soa. Tlo main offorls of llo IsraoIi navy curronlIy focus on disrupling
smuggIing, ospociaIIy bocauso of llo facl llal il is possibIo lo lransporl
mucl Iargor amounls of voapons by soa llan via llo lunnoIs.
326
Tlo Cliof
of Slaffs assossmonl is llal Hamas is aIso lrying lo improvo ils abiIilios
lo acl in doop valor againsl IsraoIi navy vossoIs. Tloroforo, llo Cliof of
Slaff anlicipalod llal llo llroal in llo lorriloriaI valors of llo Gaza Slrip
dorivos nol onIy from llo possibiIily llal vossoIs of lorrorisls Iadon vill
voapons or miIilary suppIios viII roacl llo coasl of llo Gaza Slrip bul aIso
from llo possibiIily llal slips Iadon vill oxpIosivos viII Ioavo llis aroa in
320 1|c Air .n! Missi|c W.r|.rc M.nu.|, supr. nolo 115, al 297. Al llo samo limo, soo U.S.
N.t, 1|c Ccmm.n!crs H.n!occ|, supr. nolo 92, al paras. 7.7.2.5-7.7.3 (Tlo US manuaI is
siIonl on llis issuo. making roforonco lo llo spocific roquiromonl nol lo slarvo llo civiIian
popuIalion or dony il objocls ossonliaI lo ils survivaI, as voIIs as pormilling noulraI vossoIs
ongagod in lransporling roIiof suppIios lo pass llrougl llo bIockado cordon subjocl lo
proscribod loclnicaI arrangomonl.
321 E"-1$,"-F 0/, :*-3B9$ *; /*1$"#"$",1, supr. nolo 86, al 137-138, and Hum.nii.ri.n
I.u H.n!occ| (2d od.), supr. nolo 113, al al 555, fn395 |for roforonco lo llo S.n Rcmc
M.nu.|, RuIo 102(b)j.
322 Hcinisc|c| tcn Hcincgg, 5-$?# 6@ A$B3, supr. nolo 85, al 217.
323 1|c Air .n! Missi|c W.r|.rc M.nu.|, supr. nolo 115, al 91-94.
326 |!., al 9-10.
llo diroclion of llo coasl of IsraoI or in llo diroclion of slralogic faciIilios
in llo soa.
327
An addilionaI purposo addrossod by llo Cliof of Slaff is lo
provonl llo unsuporvisod fIov of monoy lo llo Gaza Slrip, somolling
llal lappons from limo lo limo via llo lunnoIs, bul can bo dono mucl
moro oasiIy by soa. Tlo Cliof of Slaff slalod in lis loslimony llal monoy is
'oiI upon llo vlooIs of lorror sinco Iargo amounls of monoy aro roquirod
lo financo llo smuggIing oporalions.
328
According lo llis loslimony and
ollor ovidonco, llo Commission is porsuadod llal voro il nol for llo navaI
bIockado, llo Hamas couId furllor incroaso ils roarmamonl or allack llo
Slalo of IsraoI by soa.
Moroovor, as slalod, llo combinod purposo of llo navaI bIockado
and llo Iand crossings poIicy is lo slralogicaIIy Iimil llo abiIily of llo
Hamas lo carry oul oporalions againsl IsraoI and ils cilizons. An imporlanl
facl llal slouId bo lakon inlo accounl in llis rogard is llal llo numbor of
missiIo allacks from llo Gaza Slrip al IsraoI llal las faIIon from a rocord
of 3,278 in 2008 lo 165 in 2010 (as of Oclobor 7, 2010).
329
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327 |!., al 8.
328 |!., al 11.
329 |sr.c|i Dc|cnsc Icrccs. Rcc|ci Aii.c|s icu.r!s |sr.c|, .t.i|.o|c .i lllp://idfspokosporson.
com/facls-figuros/rockol-allacks-lovard-israoI (2010).
Il couId bo assumod llal Oporalion Casl Ioad lad a significanl
offocl on Hamass abiIily lo allack IsraoI, bul, as slalod abovo, ono of
llo purposos of llo navaI bIockado is aIso lo cIoso Hamass roarmamonl
clannoI. Indood, il is nol aIvays possibIo lo dolormino llo prociso offocl
of a navaI bIockado, and il slouId bo romomborod llal navaI oporalions
aro oflon combinod vill Iand oporalions.
330
Tloroforo, in llo prosonl caso
vo slouId considor llo ovoraII combinod offocl of Oporalion Casl Ioad,
addilionaI largolod oporalions, llo navaI bIockado and llo Iand crossings
poIicy, by oxamining llo docroaso in llo Hamass abiIily lo allack IsraoI.
In lorms of anlicipalod miIilary advanlago, llo Commissions
opinion is llal IsraoIs anlicipalod miIilary gains can bo assossod in parl
by roforonco lo llo facl llal llo allacks on IsraoI and ils cilizons lavo
docroasod significanlIy. AdmillodIy, roconlIy llo firing of rockols al
IsraoI las rocommoncod. Hovovor, il vouId appoar llal llo combinod
moasuros llal voro adoplod lavo Iod lo llo Hamas boing roIalivoIy
Iimilod in ils abiIilios and llo spood of roarmamonl is roducod roIalivo
lo vlal il vouId lavo boon if lloso slops lad nol boon undorlakon. Tlis
'anlicipalod miIilary advanlago, vlicl concorns roslricling Hamass
abiIily lo conlinuo lo allack llo cilizons of IsraoI, is significanl, ospociaIIy
in viov of IsraoIs rosponsibiIily lo prolocl ils cilizons againsl allacks and
socurily llroals, llo scopo and duralion of llo allacks in llo pasl, and llo
facl llal IsraoI is confronlod againsl an onomy llal is commillod lo IsraoIs
doslruclion.
90. Il is obvious llal dolormining llo anlicipalod miIilary advanlago
of imposing llo navaI bIockado is onIy llo firsl slago in voigling ils
proporlionaIily, and lloro romains llo quoslion of vlal criloria slouId
bo usod in ordor lo dolormino vlollor llo damago lo llo civiIian
popuIalion in llis rogard is 'oxcossivo. ArlicIo 102(b) of llo San Romo
ManuaI rocognizos llal llo civiIian popuIalion in a lorrilory al var viII
suffor lo somo oxlonl. Indood, llis sufforing is a lragic roaIily of boll llo
popuIalion in IsraoI and llo popuIalion of llo Gaza Slrip. InlornalionaI
lumanilarian Iav lloroforo adopls a praclicaI approacl lo llo roaIilios of
llo confIicls, in llal ils ruIos do nol nocossariIy procIudo a nogalivo offocl
on llo popuIalion bul sook lo Iimil il.
Tlo quoslion lo bo rosoIvod, lloroforo, is vlal conslilulos 'damago
villin llo moaning of arlicIo 102(b) of llo San Romo ManuaI. In llo
Commonlary lo llo Sam Romo ManuaI, llo concopl of 'damago is Iinkod
lo slarvalion.
331
ArlicIo 103 of llo ManuaI furllor providos llal if llo
330 TiII, N.t.| B|cc|.!c, supr. nolo 107, al 130.
civiIian popuIalion in llo aroa subjocl lo a navaI bIockado is inadoqualoIy
providod vill food and ollor objocls ossonliaI for ils survivaI, llo
bIockading parly is obIigod lo aIIov froo passago of foodsluffs and ollor
basic objocls, subjocl lo llo suporvision of llo bIockading parly. Iurllor
guidanco rogarding llo propor inlorprolalion may bo found in llo Harvard
Air and MissiIo Warfaro ManuaI, in vlicl ruIo 157(b) ropIacos llo vord
'damago vill llo vord 'sufforing. Tlo commonlary on llo Harvard Air
and MissiIo Warfaro ManuaI says llal 'Tlo main llrusl of RuIo 157(b) is lo
procIudo a lungor bIockado vlicl causos sovoro sufforing of llo civiIian
popuIalion.
332
NonolloIoss, llo Commonlary slalos llal 'sufforing is nol
confinod lo oxlromo inslancos sucl as a 'lungor bIockado. Wloro sucl
sufforing oxisls, llo Commonlary providos llal llo '.bIockado las lo
bo Iiflod, or froo passago of foodsluffs and ossonliaI suppIios is lo bo
aIIovod.
333
Irom lloso romarks, and from llo conloxl of llo ruIo of
proporlionaIily in boll llo San Romo ManuaI and llo Harvard Air and
MissiIo Warfaro ManuaI, il cIoarIy foIIovs llal llo 'damago or 'sufforing
discussod in inlornalionaI lumanilarian Iav aro mainIy lloso llal aro
idonlifiod in llo prolibilions of slarvalion and doprivalion of objocls
ossonliaI for llo survivaI of llo civiIian popuIalion. In llis conloxl, vo
roiloralo our concIusion abovo llal llo navaI bIockado las nol causod
slarvalion in llo Gaza Slrip, and llal IsraoI las nol provonlod llo passago
of objocls ossonliaI for llo survivaI of llo civiIian popuIalion or llo
passago of modicaI suppIios.
91. In llo courso of oxamining llo principIo of proporlionaIily, llo
ovoraII lumanilarian cosl of IsraoIs oconomic varfaro slouId aIso bo
considorod. Tlo purposo of llo oconomic varfaro in llo Gaza Slrip is lo
voakon llo oconomy in ordor lo undormino llo Hamas abiIily lo allack
IsraoI and ils cilizons.
334
Tlo non-socurily roIalod roslriclions on llo
passago of goods - sucl as llo roslriclions upon corlain food producls -
aro a parl of llis slralogy. Tlo roslriclions on iloms sucl as food aro of
parlicuIar concorn, inicr .|i., bocauso of llo unoquivocaI prolibilion againsl
slarvalion, bul aIso bocauso sucl roslriclions can lavo a significanl offocl
on llo civiIian popuIalion. IsraoIs poIicy of oconomic varfaro givos riso,
in gonoraI, lo lvo significanl issuos. Iirsl, lo vlal oxlonl is il pormissibIo
for llo Iand crossings poIicy and llo navaI bIockado lo roslricl llo accoss
lo foodsluffs and ollor basic producls llal aro usod soIoIy for civiIian
noods vlon lloso roslriclions do nol causo slarvalion. Tlo socond probIom
332 1|c Air .n! Missi|c W.r|.rc M.nu.|, supr. nolo 115, al 297, para. 1.
333 |!., al 297, para. 3.
334 1csiimcn c| Gctcrnmcni Aciitii Cccr!in.icr in i|c 1crriicrics, supr. nolo 162, al 19, Ic.!cr c|
i|c Oppcsiiicn 1zipi Iitnis cpcn !ccr icsiimcn, supr. nolo 177, al 10-11.
concorns llo duralion of llo Iand crossings poIicy and navaI bIockado,
bocauso lloro is a roaI dangor llal llo Iongor lloy Iasl, syslomic damago
lo llo oconomy viII rosuIl. Tloroforo, il may bo assumod llal llo abiIily
of llo civiIian popuIalion lo rocovor from llo bIockado aflor il is romovod
viII bo advorsoIy affoclod llo Iongor il Iasls. Tloso lvo issuos slouId bo
lakon inlo accounl vlon rovioving llo principIo of proporlionaIily on an
ongoing basis.
92. Wlon vo oxamino llo principIo of proporlionaIily, a roIovanl
comparison is llo inlornalionaI rosponsos lo llo oconomic sanclions
imposod by llo Unilod Nalions Socurily CounciI pursuanl lo claplor 7 of
llo Unilod Nalions Clarlor (i.o. vlon il dolorminos llal lloro is a llroal
lo vorId poaco, a broacl of llo poaco or acls of aggrossion).
335
AdmillodIy,
bocauso of llo doadIock in llo Socurily CounciI during llo CoId War,
oconomic sanclions voro imposod by llo Unilod Nalions onIy lvico
during llal poriod.
336
By conlrasl, in llo docados sinco llo faII of llo Iron
Curlain, llo Socurily CounciI las imposod oconomic sanclions in moro
llan a dozon casos.
337
Iursuanl lo arlicIo 42 of llo Unilod Nalions Clarlor,
335 Soo U.N. Clarlor, claplor 7, arl. 41:
"The Security Council may decide what measures not involving the use oI armed Iorce are to be
employed to give eIIect to its decisions, and it may call upon the Members oI the United Nations to
apply such measures. These may include complete or partial interruption oI economic relations and
oI rail, sea, air, postal, telegraphic, radio, and other means oI communication, and the severance oI
dipIomalic roIalions".
Il slouId bo monlionod llal llo oslabIislmonl of a navaI bIockado or a Iand crossing poIicy
aro acluaIIy a lypo of "oconomic sanclions" or "oconomic moasuros" inlondod lo disrupl or
provonl llo passago of goods or sorvicos lo a counlry or from il. Sanclions sucl as lloso
may bo imposod according lo a docision by a counlry or a rogionaI organizalion (for llo
purposo of llis roporl, lloso sanclions viII bo roforrod lo as "uniIaloraI") or as binding
Unilod Nalions Socurily CounciI |loroinaflor Tlo UN Socurily CounciIj rosoIulion (for
llo purposo of llis roporl, lloso sanclions viII bo roforrod lo as "muIliIaloraI sanclions").
Soo \%&&%##F A%-9$"*-1, supr. nolo 227, al 107.
Using sucl uniIaloraI sanclions lavo boon common llrougloul lislory (soo )%&' :#'3,
GB;4%B,& ,$ %#@F Y9*-*."9 A%-9$"*-1 ],9*-1"3,&,3> AB88#,.,-$%# :%1,
G"1$*&",1 142-270 (3rd od., 2007), vlicl prosonls dozons of caso sludios of oconomic
sanclions). Sucl sanclions voro pIacod, among ollor casos, villin armod confIicls,
as a laclic lo voakon oppononls, lo counlor oxproprialion, and IaloIy, lo counlor llo
proIiforalion of voapons of mass doslruclion and lo combal inlornalionaI lorrorism (id.,
sanclions dalabaso on accompanying CD, 14, 65-75). Al llo samo limo, llo oslabIislmonl
of a uniIaloraI navaI bIockado for purposos of oconomic varfaro during an armod confIicl
|loroinaflor "Iconomic Warfaro", lisloricaIIy, il vas nol unusuaI lo caII sucl a bIockado a
"commorciaI bIockado"j lavo boon llo oxcoplion in llo posl WorId War II poriod.
336 Irior lo 1990, llo UNs obIigalory sanclions voro onIy pIacod on Soull Rlodosia (1966)
and Soull Africa (1997). Soo \%&&%##F A%-9$"*-1, supr. nolo 227, al 107, Soo aIso
KimborIy Ann IIIiol, 1rcn!s in |ccncmic S.nciicns Pc|ic, in 5-$,&-%$"*-%# A%-9$"*-1F
L,$H,,- C*&31 %-3 C%&1 "- $/, )#*4%# A'1$,. 3, 10-11 (Iolor WaIIonsloon &
Carina Slaibano ods., 2005).
337 Ior an updalod Iisl of sanclions pIacod by llo Socurily CounciI soo UN Socurily CounciI
if llo imposilion of oconomic sanclions is inoffoclivo, llo Socurily CounciI
may aIso lako miIilary aclion, and inicr .|i. ordor llo imposilion of a
navaI bIockado.
338
Tlo povor of llo Socurily CounciI lo imposo oconomic
sanclions 'llal do nol invoIvo llo uso of miIilary forco and llo rocognilion
of llis form of varfaro villin llo scopo of llo Iavs of armod confIicl
rofIocl llo IogaIily of using oconomic sanclions and llo offoclivonoss
of oxorcising oconomic prossuro in ordor lo infIuonco Slalos and ollor
parlios. Horo, il slouId bo slalod llal oporalions llal aro carriod oul vill
llo approvaI of llo Unilod Nalions Socurily CounciI aro nol nocossariIy
subjocl lo llo samo ruIos of inlornalionaI Iav llal aro mainIy inlondod
lo roguIalo llo conducl of slalos villin llo conloxl of an armod confIicl.
339

Hovovor, llo doIiboralions llal look pIaco vill rogard lo llo imposilion
of lloso oconomic sanclions can loIp us find a slandard for assossing llo
vay in vlicl lloy may bo usod.
Boforo llo anaIysis, il is imporlanl lo cIarify llal vlon assossing llo
uso of oconomic sanclions as a moans of oconomic varfaro, caro slouId bo
lakon nol lo focus moroIy on llo laclicaI IovoI of conducling varfaro
340
in
llo sonso of 'soizing ground and voakoning or noulraIizing llo onomys
armod forcos.
341
An armod confIicl is uIlimaloIy conduclod in ordor lo
acliovo slralogic aims, and nol moroIy laclicaI goaIs.
Sanclions Commilloo: Socurily CounciI RosoIulions on GonoraI Issuos Concorning
Sanclions, .t.i|.o|c .i vvv.un.org/sc/commilloos/sanc_ros.sllmI (2006). Soo aIso Craig
H. AIIon, Iimiis cn i|c Usc c| Icrcc in M.riiimc Opcr.iicns in Suppcri c| WMD Ccunicr-
Prc|i|cr.iicn |niii.iitcs, 81 5-$?#@ A$B3@ A,&@ <@A@ =%+%# C%& :*#@ 77, 122, fn. 16 (2006).
Tlo lorm Marilimo Inlordiclion Oporalions lavo boon usod lo covor a varioly of difforonl
moasuros, vliIo il vas originaIIy conlompIalod as navaI oporalions lo onforco UN Socurily
CounciI RosoIulions imposing ombargoos llo lorm is nov usod in a broador sonso, inicr
.|i., lo covor navaI oporalions for purposos of poacokooping or lo onforco oconomic
sanclions.
Soo aIso GB;4%B,& ,$ %#@, supr. nolo 335, al 33.
338 Soo U.N. Clarlor, claplor 7, arl. 42:
"SlouId llo Socurily CounciI considor llal moasuros providod for in arl. 41 vouId bo
inadoqualo or lavo provod lo bo inadoqualo, il may lako sucl aclion by air, soa, or Iand
forcos as may bo nocossary lo mainlain or rosloro inlornalionaI poaco and socurily. Sucl
aclion may incIudo domonslralions, bIockado, and ollor oporalions by air, soa, or Iand
forcos of Mombors of llo Unilod Nalions".
339 Hcinisc|c| tcn Hcincgg, |P|I, supr. nolo 91, para. 55.
340 Soo llo Unilod Slalos Doparlmonl of Dofonso (DOD) Diclionary of MiIilary and Associalod
Torms, }oinl IubIicalion 1-02 (}uI. 2010), .t.i|.o|c .i lllp://vvv.dlic.miI/doclrino/
dod_diclionary/dala/l/7465.llmI (vlicl dofinos llo "laclicaI IovoI of var" as "Tlo IovoI
of var al vlicl ballIos and ongagomonls aro pIannod and oxoculod lo acliovo miIilary
objoclivos assignod lo laclicaI unils or lask forcos. Aclivilios al llis IovoI focus on llo
ordorod arrangomonl and manouvor of combal oIomonls in roIalion lo oacl ollor and lo
llo onomy lo acliovo combal objoclivos.").
341 Soo |CRC Ccmmcni.r cn Prciccc| | c| i|c Gcnct. Ccntcniicns, supr. nolo 285, al 57, para.
2218, soo aIso Iollor from Gisla - IogaI Conlor for Iroodom of Movomonl lo Tlo IubIic
93. 'Comprolonsivo sanclions (i.o., sanclions llal affocl aII or aImosl
aII goods, producls and oconomic rosourcos), as opposod lo 'largolod or
'smarl sanclions (i.o., sanclions llal onIy affocl spocific goods or producls
or llal roslricl a spocific sorvico of a spocific oconomic inslrumonl) lavo
boon imposod by llo Unilod Nalions Socurily CounciI fivo limos, aII of
vlicl, vill ono oxcoplion, al llo boginning of llo 1990s.
342
Tloso moasuros
gavo riso lo crilicism bocauso of llo draslic nogalivo offocls llal lloy lad
on vuInorabIo groups in llo civiIian popuIalion, ospociaIIy on cliIdron.
343

Tlo confIicl foIIoving llo Iraqi invasion of Kuvail is an oxampIo of
sanclions llal Iod lo a vavo of criliquo during llo 1990s. In llis inslanco,
llo Unilod Nalions Socurily CounciI aIso imposod oconomic sanclions llal
aro commonIy roforrod lo as a 'navaI bIockado, ovon llougl no uso vas
mado of llis lorm in llo acluaI rosoIulion llal approvod llom.
344
Tlus, for
oxampIo, il is oxprossIy vrillon in rosoIulion 661 of llo Unilod Nalions
Socurily CounciI, vlicl imposod a compIolo oxporl and imporl ombargo
on Iraq, llal onIy '. suppIios inlondod sirici| for modicaI purposos, and,
in |um.nii.ri.n circumsi.nccs, foodsluffs.
345
|omplasos addodj vouId bo
aIIovod inlo Iraq. Tlo significanco and offocl of llo oconomic sanclions
and llo navaI bIockado imposod on llo Iraqi popuIalion aro vidoIy
documonlod,
346
and il is suporfIuous lo discuss llom onco moro loro. Tlo
UN sanclionod bIockado promplod aIIogalions of broaclos of inlornalionaI
Commission lo Ixamino llo Marilimo Incidonl of May 31, 2010 (Ocl. 10, 2010).
342 Soo SC Ros 253 (May 29, 1968) concorning Soullorn Rlodosia, SC Ros 661 (Aug. 6, 1990)
concorning Iraq, SC Ros 757 (May 30, 1992) and SC Ros 820 (Apr. 17, 1993) concorning llo
formor YugosIavia, and SC Ros 917 (May 6, 1994) concorning Haili.
Soo aIso \%&&%##F A%-9$"*-1, supr. nolo 228, 107-108, as voII as Nicco Sclrijvor, 1|c
Usc c| |ccncmic S.nciicns o i|c UN. An |nicrn.iicn.| Icg.| Pcrspcciitc, in 5-$,&-%$"*-%#
Y9*-*."9 6%H %-3 2&.,3 :*-;#"9$ 129-130, 132-135 (H.H.G. Iosl od., 1994).
343 Soo for oxampIo UN|C|I. |r. W.ic|ing Bric|, .t.i|.o|c .i vvv.unicof.org/ovaIdalabaso/
fiIos/iraq_2003_valcling_briofs.pdf (2003) |loroinaflor |r., W.ic|ing Bric|j. Various
sludios concIudod llal during llo poriod of llo Iraq sanclions, infanl and cliId morlaIily
ralos incroasod significanlIy: Soo Clrisloplor C. }oynor, Uniic! N.iicns S.nciicns .|icr |r.:
Icc|ing B.c| ic Scc A|c.!, 4 :/" Z@ 5-$?# 6@ 329, 338-339 (2003).
Soo aIso C|SCR. |mp|cmcni.iicn c| i|c |nicrn.iicn.| Cctcn.ni cn |ccncmic, Scci.| .n! Cu|iur.|
Rig|is, Gcncr.| Ccmmcni Nc. 8, I/C.12/1997/8, 5, 15, .t.i|.o|c .i vvv.unlclr.cl/
lbs/doc.nsf/0/974080d2db3oc66d802565c5003b2f57Òpondocumonl (2007) |loroinaflor
C|SCR, Ccmmcni 8j.
344 Soo D*&%. E"-1$,"-F C%&F 277&,11"*- %-3 A,#;NE,;,-9, 295 (2005), soo aIso
Hcinisc|c| tcn Hcincgg, |P|I, supr. nolo 91, al para. 54 (vloro lo nolos loclnicaIIy llo
bIockado can bo discussod in lorms of non-miIilary onforcomonl undor arlicIo 41 of llo
Clarlor).
345 S.C. Ros. 661, 3, UN Doc. S/RIS/661 (Aug. 6, 1990).
346 Soo for oxampIo \%&&%##F A%-9$"*-1, supr. nolo 227, al 224-227, |r., W.ic|ing Bric|, supr.
nolo 343, }oynor, Uniic! N.iicns S.nciicns, supr. nolo 343, al 338-339, C|SCR, Ccmmcni 8,
supr. nolo 343, al para. 2.
lumanilarian Iav,
347
aIllougl lloro appoars lo bo no suggoslion by llo
Unilod Nalions or llo parlicipaling mombor slalos llal llo bIockado
vas uIlimaloIy considorod lo lavo boon iIIogaI.
348
Rosponding lo llo
criliquos, various govornmonls sponsorod procossos in vlicl mollods
lo mako smarl sanclions moro offoclivo voro oxaminod as aIlornalivos lo
comprolonsivo sanclions.
349
Tlis lrond couId aIso bo nolod in llo Unilod
Nalions GonoraI AssombIy,
350
and llo Unilod Nalions Socurily CounciI
las nol boon indifforonl lo llis procoss oillor, in roconl yoars il las nol
imposod comprolonsivo sanclions and il las aIso oslabIislod a vorking
group vloso funclion is lo rocommond lov lo improvo llo offoclivonoss
of smarl sanclions.
351
Hovovor, llo impIomonlalion of llis nov approacl
aIso givos riso lo difficuIlios. Il las boon nolod llal 'Ivon llougl sanclions
of llo scopo imposod on Iraq m. nol bo ompIoyod again, il is IikoIy llal
roIalivoIy comprolonsivo sanclions viII bo usod in llo fuluro, givon llal
moro arms ombargoos or lravoI bans viII nol provo sufficionlIy coorcivo
in aII silualions.
352

94. In sum, vlon ovaIualing proporlionaIily in llis conloxl, llo
nogalivo offocl on llo civiIian popuIalion inloronl in oconomic sanclions,
vlollor in or oulsido an armod confIicl, slouId bo lakon inlo accounl.
WliIo il is nol possibIo lo anlicipalo or idonlify llo offocls of sucl sanclions
vill scionlific procision, llo goaI is lo Iimil llo sufforing of civiIian
popuIalions. IsraoI las indood dono llis by solling up llo comprolonsivo
347 Soo Marc Bossuyl, 1|c A!tcrsc Ccnscucnccs c| |ccncmic S.nciicns, Working Iapor,
Iconomic and SociaI CounciI, I/CN.4/Sub.2/2000/33 para. 71 (2000), .t.i|.o|c .i vvv.
gIobaIpoIicy.org/compononl/conlonl/arlicIo/202/42501.llmI,
Donis }. HaIIiday, 1|c Dc.!| .n! |||cg.| Ccnscucnccs c| |ccncmic S.nciicns cn i|c Pccp|c c|
|r., 7 0/, L&*H- Z@ *; C*&#3 2;;@ 229 (2000).
348 Soo for oxampIo HaIIiday, Dc.!| .n! |||cg.| Ccnscucnccs, supr. nolo 347, |!., :*&$&"7/$ T
6*8,VF 0/, A%-9$"*-1 E,9%3,, supr. nolo 232, al 43, 45-48, 57.
349 Tloso procossos aro: InlorIakon procossos (1998-2001), Bonn-BorIin (1999-2001), SlockloIm
(2001-2002). Soo Tlomas }. Biorslokor ol aI., Ccnscnsus |rcm i|c Bciicm Up Asscssing i|c
|n||ucncc c| i|c S.nciicns Rc|crm Prcccsscs in 5-$,&-%$"*-%# A%-9$"*-1, supr. nolo 336, al
15-31.
350 2005 WorId Summil Documonl (Sop. 2005) A/60.1/I.1 para. 106, .t.i|.o|c .i vvv.
un.org/summil2005/documonls.llmI. In llo 2005 WorId Summil Oulcomo Documonl,
llo issuo of sanclions vas addrossod, as mombor slalos pIodgod lo onsuro llal sanclions
aro impIomonlod in vays llal baIanco offoclivonoss lo acliovo llo dosirod rosuIls
againsl llo possibIo advorso consoquoncos, incIuding socio-oconomic and lumanilarian
consoquoncos, for popuIalions and llird Slalos.).
351 Roporl of llo InformaI Working Group of llo Socurily CounciI on GonoraI Issuos of
Sanclions (Doc. 22, 2006) S/2006/997, .t.i|.o|c .i. vvv.socurilycounciIroporl.org/
alf/cf/7B65BICI9B-6D27-4I9C-8CD3-CI6I4II96II97D/WG20Sanclions20
S2006997.pdf
352 Robin Goiss, Hum.nii.ri.n S.|cgu.r!s in |ccncmic S.nciicns Rcgimcs. A C.|| |cr Auicm.iic
Suspcnsicn C|.uscs, Pcric!ic Mcniicring, .n! Ic||cu-up Asscssmcnis c| Icng-1crm |||ccis, 18
G%&+@ GB.@ ]$1@ Z@ 167, 198 (2005) |omplasis addodj.
moclanism for suporvising and moniloring llo lransfor of lumanilarian
suppIios lo llo Gaza Slrip via llo Iand bordor crossings. Irom llo maloriaI
llal vas brougll boforo llo Commission, il is cIoar llal IsraoIi aullorilios
roguIarIy suporviso llo Iand crossings poIicy and mako adjuslmonls lo
llis poIicy, in ordor lo provido a rosponso lo probIoms brougll lo lloir
allonlion. Tlo Coordinalor of Govornmonl Aclivilios in llo Torrilorios
mools vill mombors of llo IaIoslinian Aullorily, luman riglls groups,
and roprosonlalivos of llo inlornalionaI communily on a roguIar basis.
Al llo ond of 2009, sucl a mooling Iod lo an incroaso in llo varioly of
goods llal couId bo brougll inlo llo Gaza Slrip in ordor lo roconslrucl
and ropair rosidonliaI buiIdings (sucl as gIass, aIuminum, and vood).
353

NonolloIoss, il sooms vorllvliIo lo considor llo progross llal vas mado
around llo vorId vill rogards lo largolod or "smarl" sanclions. Il sooms
llal llo IsraoIi govornmonl's curronl poIicy is moro in Iino vill lloso
rocommondalions, in ollor vords, lloro slouId bo conlinuod offorls lo
making llo sanclions moro focusod on llo Hamas ilsoIf.
95. Will rogard lo llo duralion of llo oconomic varfaro, llo
Commission is of llo viov llal lloro is a dangor llal comprolonsivo
roslriclions on goods may nol bo rogardod as proporlionalo indofiniloIy
As slalod in llo Harvard Air and MissiIo Warfaro ManuaI, 'Tlo sufforing
of llo civiIian popuIalion may nol originaIIy bo oxpoclod lo bo oxcossivo
in roIalion lo llo concrolo and dirocl miIilary advanlago anlicipalod.
Hovovor, Ialor on, lloro may bo ompiricaI ovidonco lo llo offocl llal sucl
oxcossivo sufforing is acluaIIy laking pIaco.
354
Tloso romarks omplasizo
llo nood lo mainlain a rogimo of offoclivo suporvision and lo carry oul
poriodic roviovs al llo liglosl IovoIs of govornmonl vill rogard lo
llo roslriclions imposod on llo civiIian popuIalion. NonolloIoss, llo
Commission concIudos llal vill rogard lo llo poriod llal il oxaminod -
from llo inlroduclion of llo Iand crossings poIicy on Soplombor 19,
2007, unliI llo incidonl on May 31, 2010, vlicl is llo subjocl of llis
roporl -llo navaI bIockado and llo Iand crossings poIicy did nol bocomo
disproporlionalo pursuanl lo llo ruIos of inlornalionaI Iav bocauso of
lloir duralion.
96. In roacling ils concIusions, llo Commilloo nolos llal
"proporlionaIily" - a slandard llal dirocls docisions villin inlornalionaI
lumanilarian Iav - oflon invoIvos inlorprolalion of difficuIl docisions
and compIox assossmonls. Il las boon said llal 'AIllougl lribunaIs and
ollor commonlalors froquonlIy ondorso llo principIo of proporlionaIily,
354 1|c Air .n! Missi|c W.r|.rc M.nu.|, supr. nolo 115, al arl. 157(b), para. 3.
lloy lavo boon Ioss faslidious in oxpIaining llo oxclango ralo lloy lavo
usod lo oqualo disparalo inlogors..
355
An assossmonl of proporlionaIily
roquiros slriking a baIanco on difficuIl and doIicalo quoslions, coIIoquiaIIy
knovn as a 'comparison of appIos and orangos,
356
vlicl in our caso is
bolvoon llo miIilary advanlago anlicipalod from llo imposilion of a navaI
bIockado on llo ono land, and lumanilarian considoralions on llo ollor.
357

Tlo Supromo Courl addrossod llo principIo of 'proporlionaIily in Puo|ic
Ccmmiiicc Ag.insi 1criurc t. Gctcrnmcni villin llo conloxl of considoring
llo scopo of judiciaI roviov, slaling: 'IroporlionaIily is nol a prociso
crilorion. Somolimos lloro aro sovoraI vays of salisfying ils roquiromonls.
A margin of proporlionaIily is croalod. Tlo courl is llo guardian of ils
Iimils.
358
In llis rogard il is imporlanl lo omplasizo lvo issuos:
Willin llo zono of proporlionaIily, lloro can bo disagroomonl
rogarding llo impacl of a docision and llo ansvors can bo poIilicaIIy
and moraIIy conlrovorsiaI. Tloro is no oxacl formuIa againsl vlicl a
dolorminalion of oxcossivonoss can bo mado. As a rosuIl, a dolorminalion
llal an acl is "disproporlionalo" is invariabIy Iofl lo llo cIoarosl of
oxampIos.
In addilion llo moniloring and rovioving of IsraoIi aullorilios
concorning llo IogaIily of llo bIockado romain subjocl lo scruliny by
llo IsraoIi judiciaI syslom. IsraoIi aullorilios lavo oflon bo caIIod upon
lo dofond lloir posilion boforo llo Supromo Courl of IsraoI, and in
llo framovork of llo Iiligalion, aII parlios aro givon an opporlunily lo
prosonl lloir cIaims.
359
As a rosuIl of llis, IsraoIi aullorilios oporalo vill
llo knovIodgo llal llo poIicy lloy inlroduco and impIomonl las boon
oxaminod and viII bo oxaminod by an indopondonl courl in a domocralic
slalo vloro many luman riglls organizalions aro aclivo in bringing lloso
issuos boforo llo courl. Indood, il is rogrollabIo llal mucl of llo crilicism
IovoIod al IsraoIi poIicy vill rogard lo llo Gaza Slrip doos nol lako inlo
accounl llo ossonliaI and dirocl roIo llal llo IsraoIi IogaI syslom pIays in
onsuring llal oporalions carriod oul by llo IsraoIi Govornmonl salisfy llo
roquiromonls of llo ruIo of Iav. Sucl an approacl groalIy undorminos
llo basis of llo scruliny and loslifios lo an approacl vlicl rogards llo
inlornalionaI communily as llo onIy arbilor of llo oporalions of llo IsraoIi
355 Tlomas M. Iranck, On Prcpcriicn.|ii c| Ccunicrmc.surcs in |nicrn.iicn.| I.u, 102 2.@ Z@
5-$_#@ 6@ 715, 729 (2008).
356 |!.
357 |!., al 716.
358 1.rgcic! Ki||ing caso, supr. nolo 37, al para. 58.
359 Soo for oxampIo A|-B.ssicuni caso, supr. nolo 140.
Govornmonl. Tlis approacl is fIavod from a IogaI, poIicy, and praclicaI
porspoclivo.
97. As slalod abovo and lo compIolo llo picluro, il slouId bo nolod llal
in }uno 2010, llo IsraoIi Govornmonl clangod llo Iand bordor crossings
poIicy from a poIicy in vlicl onIy llo lransfor of Iimilod lumanilarian
suppIios vas aIIovod lo a poIicy vloro onIy llo onlry of goods llal lavo
miIilary purposos is prolibilod.
360
Tlo Irimo Minislor, Mr. Bonjamin
Nolanyalu, slalod llal llis clango vas mado for poIicy roasons, and nol
bocauso llo Iand bordor crossings poIicy vas conlrary lo inlornalionaI
lumanilarian Iav.
361
On Docombor 8, 2010, llo Govornmonl furllor
dolorminod llal subjocl lo corlain roslriclions, a graduaI pIan vouId bo
approvod for aIIoving goods lo Ioavo llo Gaza Slrip for doslinalions
oulsido of IsraoI and llo Wosl Bank. NonolloIoss, a roporl pubIislod by
various luman riglls organizalions on Novombor 30, 2010, slalos llal in
praclico onIy a sIigll clango in IsraoI's poIicy lovard llo onlry of goods lo
llo Gaza Slrip vas apparonl aflor IsraoI announcod llis roIaxing of ils Iand
bordor poIicy.
362
Tlo Commission did nol oxamino nov ovidonco roIaling
lo llo nov Iand crossings poIicy and lloroforo il is unabIo lo assoss ils
360 Tlo curronl Iisl of iloms vloso onlranco is conlroIIod incIudos, among ollors, voapons and
ammunilion, "duaI-uso" objocls, and buiIding maloriaIs, soo |sr.c| Minisir c| Icrcign C.scs.
G.z.. Iisis c| Ccnirc||c! |nir |icms, .t.i|.o|c .i vvv.mfa.gov.iI/MIA/HumanilarianAid/
IaIoslinians/Iisls_ConlroIIod_Inlry_Iloms_4-}uI-2010.llm (2010).
361 Primc Minisicrs Opcn Dccr 1csiimcn, supr. nolo 82, al 17.
362 IIDH (InlornalionaI Iodoralion for Human Riglls, Daslod Hopos: Conlinualion of llo
Gaza BIockado (Nov. 30, 2010), .t.i|.o|c .i lllp://vvv.fidl.org/DASHID-HOIIS-
CONTINUATION-OI-THI-GAZA-BIOCKADI, al llo samo limo, in Gisla's roporl of
Docombor 2010 il vas slalod: "Tlo pasl fivo monlls sinco llo }uIy 6
ll
impIomonlalion of
llo govornmonls docision lavo soon a sloady incroaso in llo amounl of consumor goods
onloring llo Gaza Slrip, corrosponding vill llo roIaxing of llo ban on lousoloId iloms
and food producls, and infraslrucluro clangos mado lo llo Korom SlaIom Crossing.
Dospilo a soomingIy promising InlornalionaI Monolary Iund roporl issuod in Soplombor
rofIocling grovll in llo Slrip, lovovor, sociooconomic indicalors poinl lo a mucl Ioss
posilivo picluro. Ralos of unompIoymonl, food insocurily, and povorly romain ligl."
Tlo roporl by Gisla poinls lo llo clangos mado in llo fioId in lorms of IsraoIs poIicy.
Tlus, for oxampIo, llo roporl monlions llal llo voIumo of goods onloring las incroasod
lo aboul 40 of nood, rallor llan 22 of nood during llo pasl llroo yoars, "Somo Iimilod
oxporl las bogun in llo pasl vooks, vill a promiso lo aIIov furllor oxporl of iloms from
llo agricuIluro, furniluro and Iigll induslry soclors, according lo a Docombor 8
ll
cabinol
docision." Iikoviso llo roporl monlions llal lloro is "a sIigll incroaso in llo numbor of
pormils givon lo businossporsons" lo oxil llo Gaza Slrip. Tlo roporl assorls llal lloso
oasomonls aro insufficionl and llal lo oblain "lruo and suslainabIo oconomic rocovory
|.j roquiros romoving romaining roslriclions on llo movomonl of goods and poopIo."
Soo "Roconslrucling llo CIosouro: WiII roconl clangos lo llo cIosuro poIicy bo onougl lo
buiId in Gaza`" (posilion papor by llo Gisla organizalion - IogaI Conlor for Iroodom of
Movomonl, Docombor 2010).
offocl. Hovovor, insofar as il migll lavo improvod llo posilion of llo
civiIian popuIalion in llo Gaza Slrip, il is of courso lo bo commondod.
Tlo Commission las lloroforo roaclod llo concIusion llal IsraoI
is in compIianco vill llo roquiromonl of proporlionaIily providod in
inlornalionaI lumanilarian Iav, ospociaIIy in viov of llo oxlonsivo slops
llal il look roconlIy in ordor lo roslricl llo offocls of llo navaI bIockado
and llo Iand crossings poIicy on llo popuIalion of llo Gaza Slrip.
363

InternatinnaI human rights Iaw and its appIicatinn in
nur case
98. As monlionod abovo, as vill many ollor conlomporary quoslions
concorning llo impIomonlalion of inlornalionaI lumanilarian Iav, an
oxaminalion of llo inlorfaco bolvoon lloso ruIos and inlornalionaI luman
riglls Iav is roquirod. In llo W.|| caso, llo InlornalionaI Courl of }uslico
rocognizod llal inlornalionaI luman riglls Iav, vlicl incIudos poIilicaI
and civiI riglls and oconomic, sociaI and cuIluraI riglls, conlinuos lo
appIy during an armod confIicl.
364
NonolloIoss, il is nol aIvays cIoar lo
vlal oxlonl lloso riglls appIy, ospociaIIy vloro ruIos of inlornalionaI
lumanilarian Iav appIy as a |cx spcci.|is.
365
Boforo vo bogin llo anaIysis, il slouId bo nolod llal in llo W.||
caso, llo InlornalionaI Courl of }uslico aIso considorod llo appIicalion
of lvo normalivo sysloms lo a lorrilory llal il cIassifiod as an 'occupiod
lorrilory. In a silualion of occupiod lorrilory, il is oflon considorod llal
luman riglls Iav may bo moro roadiIy appIiod llan in ollor armod
confIicl silualions. Indood, vliIo llis roporl concIudos llal IsraoI no Iongor
las offoclivo conlroI ovor llo Gaza Slrip, llo anaIysis aIso discussos lov
various organizalions and bodios conlinuo lo loId llo posilion llal IsraoI
is an occupying povor in llo Gaza Slrip. Hovovor, ovon in llo conloxl of
occupalion, quoslions lavo boon raisod as lo vlollor llo vloIo panopIy
of luman riglls Iav can or slouId bo appIiod by an occupying slalo llal
cIoarIy cannol acl as llo sovoroign aullorily.
366
Tlis issuo is ospociaIIy
363 Soo 1|c Air .n! Missi|c W.r|.rc M.nu.|, supr. nolo 115, al arl. 157(b), para. 3 (vloro il is
slalod llal if an aoriaI bIockado causos oxcossivo sufforing "bIockado las lo bo Iiflod, cr |rcc
p.ss.gc c| |cc!siu||s .n! csscnii.| supp|ics is ic oc .||cuc!" |omplasis addodj.
364 Soo i|c W.|| caso, supr. nolo 130, al paras. 102-107.
365 Soo Icg.|ii c| i|c 1|rc.i cr Usc c| Nuc|c.r Wc.pcns, Advisory Opinion, I.C.}. (}uI. 1996) para. 239-
240, .t.i|.o|c .i lllp://vvv.icj-cij.org/dockol/indox.plp`p1=3&p2=4&k=09&caso=95
|loroaflor: Nuc|c.r Wc.pcns C.scj.
366 Soo Naz K. Modirzadol, 1|c D.r| Si!cs c| Ccntcrgcncc. A Prc-citi|i.n Criiiuc c| i|c
|xir.icrriicri.| App|ic.iicn c| Hum.n Rig|is I.u in Armc! Ccn||ici, 86 5-$_# 6@ A$B3@ 349,
375-376 (2010).
compIox in llo Gaza silualion sinco llo argumonl suggosling IsraoI is llo
occupying povor las lo addross llo oxislonco of an onlily, llo Hamas,
llal carrios oul acluaI plysicaI conlroI ovor llo lorrilory, vliIo IsraoI
conlroIs onIy llo bordors. Human riglls groups lavo rigllIy nolod llal
il is llo Hamas, as llo ruIing povor in llo Gaza Slrip, vlo is rosponsibIo
for prolocling llo luman riglls of llo Gaza rosidonls, vlicl incIudos
"prolocling llo rigll lo Iifo, loaIll, oducalion, adoqualo Iiving condilions
and cIoan valor."
367
99. Sinco lloro aro comprolonsivo and dolaiIod ruIos in inlornalionaI
lumanilarian Iav roguIaling llo imposilion of a navaI bIockado, llo
quoslion arisos as lo vlal oxlonl llo criloria of inlornalionaI luman
riglls Iav slouId bo lakon inlo accounl. Ior oxampIo, llo ruIos of llo
inlornalionaI lumanilarian Iav doaIing vill a navaI bIockado, sucl as
llo prolibilion of slarvalion or llo prolibilion of dopriving llo civiIian
popuIalion of objocls ossonliaI for ils survivaI and llo quoslion of llo
'damago or 'sufforing addrossod in arlicIo 102(b) of llo San Romo ManuaI,
addross llo rigll lo Iifo, a rigll llal aIso Iios, of courso, al llo loarl of
inlornalionaI luman riglls Iav. Irom llis viovpoinl, llo lvo normalivo
rogimos 'slaro a common coro of fundamonlaI slandards vlicl aro
appIicabIo al aII limos, in aII circumslancos and lo aII parlios, and from
vlicl no dorogalion is pormillod.
368
Sinco llo rigll of llo inlabilanls
of llo Gaza Slrip lo Iifo is addrossod in llo |cx spcci.|is llal appIios loro,
namoIy llo ruIos of inlornalionaI lumanilarian Iav, il is lloso ruIos llal
slouId primariIy bo appIiod.
100. AIIogalions lavo aIso boon raisod llal IsraoI is in vioIalion of
inlornalionaI luman riglls Iav
369
bocauso il roslricls llo movomonl
of poopIo lo and from llo Gaza Slrip and lloroby vioIalos llo rigll lo
367 Gis|.. ||cciricii S|cri.gc in G.z.. W|c 1urnc! Oui i|c Iig|is, .t.i|.o|c .i vvv.gisla.org/
UsorIiIos/IiIo/pubIicalions/IIoclricilypaporIngIisl.pdf (2010).
See also Testimonv of Phvsicians for Human Rights, supra note 244, at 19.
368 Prcsccuicr t. Dc|.|ic, AppoaIs }udgmonl, No. IT-96-21-A, para. 149 (Iob. 20, 2001) (CoIobici
caso), soo aIso Tloodor Moron, 1|c Hum.niz.iicn c| Hum.nii.ri.n I.u, 94 A}II 239, 266-267
(2000).
369 Soo for oxampIo Unilod Nalions OHCHR: Human Riglls Silualion in IaIoslino and Ollor
Occupiod Arab Torrilorios, 30, U.N. Doc. A/HRC/12/37 (Aug. 19, 2009), .t.i|.o|c .i
lllp://unispaI.un.org/UNISIAI.NSI/0/71266I7CD47BBDIA85257615004D8635:
"Tlo miIilary oporalion and llo conlinuod bIockado lavo lad sovoro cumuIalivo offocls on
llo roaIizalion of a vido rango of oconomic, sociaI and cuIluraI riglls, as voII as civiI and
poIilicaI riglls of llo Gaza popuIalion".
Soo aIso Ccnsc|i!.ic! Appc.|, supr. nolo 219, al 8:
"IaIoslinians in llo OIT conlinuod lo faco vidosproad doniaI of lloir basic luman riglls,
incIuding llo rigll lo Iifo, Iiborly, froodom of movomonl, soIf-dolorminalion and accoss lo
ompIoymonl, loaIll and oducalion".
froodom of movomonl as slalod in arlicIo 12 of llo InlornalionaI Covonanl
on CiviI and IoIilicaI Riglls (ICCIR).
370
In llis rospocl, il slouId bo nolod
llal ono of llo IogaI condilions slipuIalod by llo |cx spcci.|is rogarding llo
imposilion of a navaI bIockado is llo condilion of 'offoclivonoss
371
and
ils imparliaI impIomonlalion vill rogard lo llo slipping vossoIs of aII
Slalos.
372
Tloroforo, llo concopl of a 'navaI bIockado inloronlIy incIudos
llo roslriclion of aII movomonl by soa. Moroovor, llo rigll of llo cilizons
of ono slalo lo cross llo bordors of llo slalo inlo anollor slalo vill vlicl
lloy aro al var is nol unIimilod. A slalo may, villoul doubl, roslricl llo
froodom of movomonl of porsons boyond ils bordors in ordor lo prolocl
nalionaI socurily and pubIic ordor.
373
Tloroforo, llo Commission las roaclod llo concIusion llal mosl
of llo issuos llal voro raisod villin llis framovork lavo aIroady boon
addrossod abovo pursuanl lo llo |cx spcci.|is llal appIios loro, namoIy llo
ruIos of inlornalionaI lumanilarian Iav.
Iurllor, lloro is nolling in llo ovidonco llal suggosls llal concorns
raisod rogarding llo roaIizalion of luman riglls norms vouId riso lo a
IovoI llal rondors llo navaI bIockado and llo accompanying Iand cIosuro
conlrary lo inlornalionaI Iav bocauso il is disproporlionalo.
CIaims regarding 'cnIIective punishment'
101. An issuo llal las lo bo addrossod is vlollor llo bIockado and
IsraoIs Iand crossings poIicy aro a form of 'coIIoclivo punislmonl llal
is conlrary lo llo ruIos of inlornalionaI lumanilarian Iav. Tlis is a vory
sorious cIaim.
374
Undor llo circumslancos, il is imporlanl lo anaIyzo llo
concopl of 'coIIoclivo punislmonl lo undorsland ils basis in Iav and
polonliaI roIovanco lo llo caso al land.
370 Gis|.. G.z. C|csurc Dc|inc!. Cc||cciitc Punis|mcni, Pcsiiicn P.pcr cn i|c |nicrn.iicn.| I.u
Dc|iniiicn c| |sr.c|i Rcsiriciicns cn Mctcmcni in .n! cui c| i|c G.z. Sirip, .t.i|.o|c .i vvv.
gisla.org/UsorIiIos/IiIo/pubIicalions/GazaCIosuroDofinodIng.pdf (2008), al 10.
372 |!., al ruIo 100.
373 InlornalionaI Covonanl on CiviI and IoIilicaI Riglls, Doc. 16, 1966, S. Troaly Doc. No. 95-
20, 6 I.I.M. 368 (1967), 999 U.N.T.S. 171.
374 CoIIoclivo punislmonl is nol onumoralod as a var crimo in ArlicIo 147 of Convonlion
(IV) roIalivo lo llo Iroloclion of CiviIian Iorsons in Timo of War, Gonova, 12 Augusl
1949 |loroinaflor Gcnct. Ccntcniicn |Vj. Hovovor, vliIo gravo broaclos of llo
Gonova Convonlions aro llo mosl sorious var crimos, ollor vioIalions of inlornalionaI
lumanilarian Iav aro aIso calogorizod as sucl. Il is uncIoar vlollor llo accusalion IovoIod
al IsraoI by corlain parlios - according lo vlicl llo navaI bIockado amounls lo a broacl of
inlornalionaI Iav - aIso impIios llal llis conslilulos a var crimo.
102. Tlo suggoslod basis in lroaly Iav for llis concopl is found in
arlicIo 33 of llo Iourll Gonova Convonlion
375
and arlicIo 50 of llo Haguo
RoguIalions of 1907, vlicl prolibil llo punislmonl of a proloclod porson
bocauso of acls llal lo did nol commil indopondonlIy or for vlicl lo is
nol ollorviso rosponsibIo.
376
Tlis prolibilion vas aIso rocognizod in llo
Iirsl AddilionaI IrolocoI and llo Socond AddilionaI IrolocoI as a basic
guaranloo for aII civiIians and injurod mombors of llo armod forcos llal
can no Iongor acl as combalanls (|crs !c ccmo.i).
377
AIllougl coIIoclivo
punislmonl las boon rocognizod as a var crimo in llo conslilulion of llo
InlornalionaI CriminaI TribunaI for Rvanda and in llo SpociaI TribunaI
for Siorra Ioono,
378
il is nol incIudod in llo Iisl of crimos onumoralod in
llo Romo Slalulo of 1998 of llo InlornalionaI CriminaI Courl, unIiko,
for oxampIo, llo crimo of 'inlonlionaIIy using slarvalion of civiIians as
a mollod of varfaro by dopriving llom of objocls indisponsabIo lo lloir
survivaI, incIuding viIIfuIIy impoding roIiof suppIios as providod for
undor llo Gonova Convonlions, vlicl is slipuIalod in arlicIo 8(2)(b)
(XXV) of llo Romo Convonlion.
103. Tlo various commonlarios of llo InlornalionaI Commilloo of
llo Rod Cross provido a parlicuIarIy broad inlorprolalion lo llo lorm
'coIIoclivo punislmonl. Tlo Commonlary lo arlicIo 33 of Gonova
Convonlion IV indicalos llal coIIoclivo ponaIlios rofors nol lo sonloncos
pronouncod by a courl bul rallor ponaIlios of any kind infIiclod on porsons
or onliro groups for acls lloso porsons lavo nol commillod. SimiIarIy, llo
commonlary on arlicIo 75 of llo Iirsl AddilionaI IrolocoI proposos llal
'llo concopl of coIIoclivo punislmonl musl bo undorslood in llo broadosl
sonso: il covors nol onIy IogaI sonloncos bul sanclions and larassmonl
of any sorl, adminislralivo, by poIico aclion or ollorviso.
379
IinaIIy, llo
375 Gcnct. Ccntcniicn |V, supr. nolo 374, al para. 33, slalos llo foIIoving:
"No proloclod porson may bo punislod for an offonco lo or slo las nol porsonaIIy
commillod. CoIIoclivo ponaIlios and Iikoviso aII moasuros of inlimidalion or of lorrorism
aro prolibilod.
IiIIago is prolibilod.
RoprisaIs againsl proloclod porsons and lloir proporly aro prolibilod".
376 Tlo Haguo Convonlion (1907), al para. 50, slalos llo foIIoving:
"No general penalty, pecuniary or otherwise, shall be inIlicted upon the population
on account oI the acts oI individuals Ior which they cannot be regarded as jointly
and severally responsible".
377 Soo Ccmmcni.r cn Prciccc| | c| i|c Gcnct. Ccntcniicns, supr. nolo 285, al 225, arl. 33, para.
1.
378 Soo arl. 4(b) of llo InlornalionaI CriminaI TribunaI of Rvanda (ICTR), VioIalions of
ArlicIo 3 Common lo llo Gonova Convonlions and of AddilionaI IrolocoI II" and arl. 3(b)
of llo Slalulo of llo SpociaI Courl for Siorra Ioono.
379 Soo |CRC Ccmmcni.r cn Prciccc| | c| i|c Gcnct. Ccntcniicns, supr. nolo 285, al 225, arl. 75,
para. 3055.
proposod inlorprolalion of arlicIo 4(2)(b) in llo Commonlary on llo
Socond AddilionaI IrolocoI is llal coIIoclivo punislmonl is virluaIIy
oquivaIonl lo prolibiling "roprisaIs" againsl proloclod porsons aIllougl
sucl a prolibilion is cIoarIy found oIsovloro in llo Iav.
380
In llis rospocl
il slouId bo nolod llal llo caso llal is mosl oflon idonlifiod vill llo issuo
of coIIoclivo punislmonl - llo Prico|c caso - doaIl vill a conviclion for acls
of roprisaI llal voro commillod by Gorman forcos againsl IlaIian civiIians
during llo Socond WorId War.
381
Tlo Commonlary on llo Iirsl AddilionaI
IrolocoI proposos llal 'llo prolibilion |of coIIoclivo punislmonlj is
acluaIIy concornod vill inlimidalion,
382
ovon llougl allompls lo oxlond
llo provisions lo llo uso of plysicaI and moraI coorcion lavo nol boon
succossfuI, sinco simiIar arlicIos aIroady oxisl vill rogard lo prisonors of
var and civiIians.
383
Tlis is vloro llo difficuIly Iios from llo viovpoinl of lloso
vlo cIaim llal imposing a navaI bIockado and adopling a mollod of
oconomic varfaro is 'coIIoclivo punislmonl, loo broad an inlorprolalion
of llo concopl of 'coIIoclivo punislmonl can rosuIl in a confIicl vill
addilionaI and moro spocific provisions of inlornalionaI lumanilarian
Iav, sucl as llo Iavs llal govorn llo imposilion of a navaI bIockado. A
broad inlorprolalion of vlal conslilulos coIIoclivo punislmonl las lo bo
roconciIod vill boll llo naluro of navaI bIockado as a IavfuI form of
varfaro and llo spocific cuslomary Iav provisions roguIaling llo conducl
of sucl a bIockado. If llo cuslomary ruIos rogarding llo imposilion of a
navaI bIockado aro foIIovod, il is difficuIl lo soo lov llis couId conslilulo
coIIoclivo punislmonl.
104. Sinco ono of llo purposos of imposing a navaI bIockado is lo
uso coorcion againsl a losliIo slalo or onlily llal is a parly lo an armod
confIicl, llo affoclod popuIalion viII gonoraIIy fooI llo offocls of llis
380 Soo ICRC Commonlary on IrolocoIs AddilionaI lo llo Gonova Convonlions of 12 Augusl
1949, and RoIaling lo llo Iroloclion of Viclims in Armod ConfIicls (IrolocoI II), }un. 8,
1977 |loroinaflor |CRC Ccmmcni.r cn Prciccc| || c| i|c Gcnct. Ccntcniicnsj, al para. 4536.
381 Sorgio Marclisio, 1|c Iriobko C.sc oc|crc i|c |i.|i.n Mi|ii.r 1rioun.|s. A Rc.||irm.iicn c|
i|c Princip|c c| Ncn-App|ic.oi|ii c| Si.iuicr Iimii.iicns ic W.r Crimcs .n! Crimcs .g.insi
Hum.nii, 1 D@L@ 5-$?# GB.@ 6%H 344, 350 (1998) (il slouId bo nolod llal llo MiIilary
TribunaI rojoclod llo cIaim llal llo kiIIings conslilulod coIIoclivo punislmonl arguing
llal according lo llo doclrino, coIIoclivo punislmonl can affocl onIy a communily and
nol individuaIs: in llal sonso a cIassicaI oxampIo of coIIoclivo punislmonl is llo roquisilion
of proporlios of llo slalo sucl as Iibrarios, musoums, olc, soo Irancosca Marlinos 1|c
Dc|cnccs c| Rcpris.|s, Supcricr Or!crs .n! Durcss in i|c Iriobko C.sc Bc|crc i|c |i.|i.n Mi|ii.r
1rioun.|, 1 DL *; 5-$?# GB.@ 6%H 354, 356 (1998)).
382 Soo |CRC Ccmmcni.r cn Prciccc| | c| i|c Gcnct. Ccntcniicns, supr. nolo 285, al 225, arl. 75,
para. 3056.
383 |!., al para. 3057.
prossuro. Tlo issuo is nol llal lloro is coorcivo aclion vlicl impacls llo
popuIalion coIIaloraIIy, bul rallor vlal llal impacl is and vlal miligaling
lumanilarian moasuros aro pul in pIaco. Tlis roaIily is rofIoclod in llo
assossmonl of oconomic sanclions ovon in silualions llal do nol amounl
lo an armod confIicl. As llo Iconomic and SociaI CounciI of llo Unilod
Nalions said in 1997:
'In considoring sanclions, il is ossonliaI lo dislinguisl bolvoon llo
basic objoclivo of appIying poIilicaI and oconomic prossuro upon
llo govorning oIilo of llo counlry lo porsuado llom lo conform lo
inlornalionaI Iav, and llo coIIaloraI infIiclion of sufforing upon
llo mosl vuInorabIo groups villin llo largolod counlry. Ior llal
roason, llo sanclions rogimos oslabIislod by llo Socurily CounciI
nov incIudo lumanilarian oxomplions dosignod lo pormil llo
fIov of ossonliaI goods and sorvicos doslinod for lumanilarian
purposos. Il is commonIy assumod llal lloso oxomplions onsuro
basic rospocl for oconomic, sociaI and cuIluraI riglls villin llo
largolod counlry.
384
Tlo issuo is nol llal lloro is coorcivo aclion impacling llo
popuIalion coIIaloraIIy, bul rallor vlal llal impacl is and vlal miligaling
lumanilarian moasuros aro pul in pIaco. Tloroforo, llo facl llal llo fabric
of oconomic Iifo of llo civiIian popuIalion is advorsoIy affoclod as a rosuIl
of oconomic varfaro doos nol, in ilsoIf, amounl lo 'coIIoclivo punislmonl.
105. Wlon roforring lo 'coIIoclivo punislmonl, a slarp dislinclion
slouId bo mado in rogards lo lvo lypos of poIicy: (i) an aullorily
punislos a group knovn lo compriso innoconl individuaIs, and (ii) an
aullorily punislos a guiIly individuaI, bul in doing so, uninlonlionaIIy
or unavoidabIy causos a larmfuI offocl upon innoconl llird parlios. Tlo
socond poIicy is accoplod in llo lumanilarian IogaI syslom as Iong as
llo offocl is nol disproporlionalo comparod lo llo miIilary advanlago.
Tlo koy issuo is lloroforo vlollor larm is inlonlionaIIy diroclod al llo
civiIian popuIalion or an uninlondod oulcomo.
385
Ior oxampIo, llo SpociaI
Courl for Siorra Ioono las providod llal llo oIomonls of llo crimo of
coIIoclivo punislmonls incIudo "llo inlonl on llo parl of llo porpolralor
lo indiscriminaloIy and coIIoclivoIy punisl llo porsons for acls vlicl
384 Soo C|SCR, Ccmmcni 8, supr. nolo 343, al 2, para. 4 (llo roporl llon vonl on lo indicalo
llal llo oxomplions do nol lavo llo dosirod offocl prompling rocommondalions for
roform).
385 In lorms of anaIyzing llo aIIogod coIIoclivo punislmonl as a var crimo, il slouId bo
nolod llal criminaI rosponsibiIily gonoraIIy roquiros a monlaI oIomonl. Tlo principIo llal
criminaI rosponsibiIily cannol bo incurrod villoul llo roquisilo inlonl can bo dorivod
from ArlicIo 30 in llo ICC Slalulo, vlicl providos llal a porson slouId bo IiabIo for a
crimo onIy if llo maloriaI oIomonls aro combinod vill inlonl and knovIodgo.
form llo subjocl of llo punislmonl."
386
Anollor oxampIo is arlicIo 51(2)
of AddilionaI IrolocoI I, vlicl prolibils acls or llroals of vioIonco llo
(538+5C (75(&6# of vlicl is lo sproad lorror among llo civiIian popuIalion
|omplasis addodj.
106. As lo llo offocls of llo bIockado and llo Iand crossings poIicy
on llo civiIian popuIalion in llo Gaza Slrip, lloro is no doubl llal llo
oconomic varfaro IsraoI carrios oul vill an inlonlion of voakoning llo
Hamas las an advorso impacl on llo daiIy Iifo of llo civiIian popuIalion
in Gaza. Hovovor, a numbor of llo roslriclions idonlifiod as ovidonco of
llo aIIogod coIIoclivo punislmonl aro imposod for a socurily roasons (i.o.
roslriclions on maloriaIs sucl as concrolo and corlain modicaI suppIios llal
can lavo a miIilary uso).
387
Iurllor, consislonl vill ils obIigalions undor
inlornalionaI lumanilarian Iav, IsraoI las sol up a syslom for moniloring
and coordinaling lumanilarian aid in Gaza in ordor lo aIIovialo lloso
offocls.
388
Tloro is nolling in llo ovidonco, incIuding llal found in llo
numorous lumanilarian and luman riglls roporls, llal suggosl llal
IsraoI is inicniicn.|| pIacing roslriclions on goods for llo soIo or primary
purposo of donying llom lo llo popuIalion of Gaza.
107. As for llo navaI bIockado ilsoIf, villin llo framovork of llo ruIos
llal govorn llo imposilion and onforcomonl of sucl a bIockado, lloro is no
basis for an aIIogalion of 'coIIoclivo punislmonl. Tloro is nolling in llo
Rod Cross Cuslomary InlornalionaI Iav Sludy llal in any vay connocls
llo idoa of 'coIIoclivo punislmonl vill a navaI bIockado or siogo varfaro.
On llo conlrary, llo Sludy slalos llal 'llo prolibilion of slarvalion as a
mollod of varfaro doos nol prolibil llo imposilion of a navaI bIockado
as Iong as llo purposo is lo acliovo a miIilary objoclivo and nol lo slarvo a
civiIian popuIalion.
389
SimiIarIy, vill rogard lo a siogo, vlicl is anollor
coorcivo mollod of varfaro, llo Rod Cross Cuslomary InlornalionaI Iav
Sludy roiloralos llo facl llal llo prolibilion of slarvalion as a moans of
varfaro doos nol aulomalicaIIy prolibil a siogo as Iong as llo purposo
is lo acliovo a miIilary goaI rallor llan llo slarvalion of llo civiIian
popuIalion.
390
Il is lard lo roconciIo lloso slalomonls vill llo nolion llal
llo navaI bIockado on llo Gaza Slrip, ovon vlon considorod in conjunclion
vill llo bordor poIicy, faIIs villin llo moaning of coIIoclivo punislmonl.
386 Prcsccuicr t. Brim., K.m.r., .n! K.nu, Caso No. SCSI-2004-16-T, TriaI Clambor }udgmonl,
para. 676 (}un. 20, 2007).
387 Primc Minisicrs Opcn Dccr 1csiimcn, supr. nolo 82, al 25, Ic.!cr c| i|c Oppcsiiicn 1zipi
Iitnis cpcn !ccr icsiimcn, supr. nolo 177, al 12, 1|c Mi|ii.r A!tcc.ic-Gcncr.|s icsiimcn,
supr. nolo 98, al 60.
389 :B1$*.%&' 5-$,&-%$"*-%# GB.%-"$%&"%- 6%H, supr. nolo 146, al 189.
390 |!., al 188.
Tloro is nolling on llo facls llal vouId suggosl oillor oporalion vas pul
inlo offocl as a roprisaI or diroclod al llo civiIian popuIalion.
391

In concIusion, llo Commission is of llo viov llal llo imposilion
and onforcomonl of llo navaI bIockado and llo Iand crossings poIicy on
llo Gaza Slrip do nol conslilulo 'coIIoclivo punislmonl of llo civiIian
popuIalion.
Means nI resnIving disputes regarding the IegaIity nI a
navaI bInckade
108. Ivon if llo navaI bIockado againsl llo Gaza Slrip lad boon
considorod nol lo mool llo roquiromonls of inlornalionaI Iav, individuaIs
or groups do nol lavo llo rigll lo lakos llo Iav inlo lloir ovn lands
and broacl llo bIockado. IndividuaIs or groups do nol lavo llo rigll lo
oxorciso unIimilod soIf-loIp moasuros in llo faco of slalo aullorilios.
Tlis couId rosuIl in llo ovonluaI juslificalion of usos of forco cxicrn.| lo
llo roaIm of llo U.N. Clarlor.
109. Moroovor, llo cIaim llal noulraI slipping is froo lo ignoro llo
oxislonco of a navaI bIockado for llo roason llal il prim. |.cic broaclos
llo provisions of arlicIo 102 of llo San Romo ManuaI amounls lo a cIaim
llal llo bIockado - an acl of a sovoroign slalo - is nuII and void. Tlo
Commission is of llo opinion llal llo casos in inlornalionaI Iav vloro
acls of a slalo aro rogardod as void - as opposod lo iIIogaI or unjusl - aro
raro. In gonoraI, il is possibIo llal llo aclions of a slalo llal amounl lo a
vioIalion of 'llo binding norms of inlornalionaI Iav (jus ccgcns) viII bo
dofinod as void .o iniiic and lloroforo lloy may bo ignorod. Tlis is cIoarIy
llo conlonl of inlornalionaI lroalios,
392
and il may bo doducod from llo
InlornalionaI Iav Commissions Drafl ArlicIos on Slalo RosponsibiIily, in
casos vloro lloro is a gross vioIalion of jus ccgcns norms.
393
AdmillodIy,
lloro is somo dogroo of consonsus on llo quoslion of llo conlonl of jus
ccgcns norms, bul lloso norms aro nol aullorilalivoIy onumoralod. Tlo
nolos lo llo InlornalionaI Iav Commissions Drafl ArlicIos, vlicl is a
non-oxlauslivo Iisl, monlion llo prolibilions of aggrossion, sIavory,
gonocido, raciaI discriminalion and Aparlloid, lorluro and llo rigll lo
391 Soo |CRC Ccmmcni.r cn Prciccc| | c| i|c Gcnct. Ccntcniicns, supr. nolo 285, 225:
"RoprisaIs aro moasuros conlrary lo Iav, bul vlicl, vlon lakon by ono Slalo vill rogard
lo anollor Slalo lo onsuro llo cossalion of corlain acls or lo oblain componsalion for llom,
aro considorod as IavfuI in llo parlicuIar condilions undor vlicl lloy aro carriod oul".
392 Vionna Convonlion on llo Iav of Troalios. May 23, 1969, 1155 U.N.T.S. 331, arlicIo 53.
393 Id., Inl'I I. Comm'n |IICj, Dr.|i Ariic|cs cn Rcspcnsioi|ii |cr |nicrn.iicn.|| Wrcng|u|
Acis, uii| Ccmmcni.rics, 2 D@L@ 5-$_# 6@ :*.._- (2001) arlicIos 40-41 |loroinaflor |IC
Dr.|ij.
soIf-dolorminalion.
394
In llo caso al land caso, lloro is no basis for saying
llal lloso norms lavo boon vioIalod.
110. Tlo ruIos llal govorn llo imposilion of a navaI bIockado, as
rofIoclod in Ioading navaI manuaIs, as voII as in llo San Romo ManuaI,
conlains norms dosignalod lo prolocl llo inlorosls of llroo groups: llo
bIockading parly, noulraIs, and llo popuIalion of llo bIockadod slalo or
onlily. Among llo norms prolocling noulraIs inlorosl aro llo roquiromonls
llal a bIockado bo docIarod,
395
spocifiod,
396
offoclivo,
397
imparliaI,
398
and
llal il musl nol bar accoss lo porls of noulraI slalos.
399
Tloso roquiromonls
prolocl moslIy llo roIianco inlorosl of noulraI povors and vossoIs. Tlo
inlorosls of llo popuIalion villin llo bIockadod lorrilory, convorsoIy, aro
proloclod in llo aforomonlionod arlicIo 102.
Iurllormoro, in llo silualion al land, il is indispulabIo llal llo
vossoIs voro offorod lo doIivor llo aid inlo Gaza llrougl llo Asldod
porl, ponding socurily inspoclion and undor llo suporvision of roIovanl
and imparliaI inlornalionaI agoncios. Tlus, and in i|c rc|.iicn bolvoon llo
bIockading povor and llo noulraI vossoIs, IsraoI las aclod according lo
llo provisions of arlicIo 103 of llo San Romo ManuaI. Tloroforo, ovon
voro vo lo accopl, .rgucn!c, llal a noulraI slipping vossoI las a rigll
lo broacl a navaI bIockado bocauso il is disproporlionalo, in llo spocific
circumslancos of llo caso boforo us, il can bo said llal llo iIIogaIily vas
ropairod by IsraoIs offor lo lransfor llo lumanilarian suppIios lo llo Gaza
Slrip, vlicl vas lransmillod lo llo slipping vossoIs llal parlicipalod in
llo fIoliIIa. In lrull, llo allompl lo broacl llo bIockado couId nol lavo
lad any ollor purposo llan a poIilicaI ono. Tlo Commission is convincod
llal a poIilicaI purposo in ilsoIf cannol givo a slipping vossoI llo rigll lo
broacl llo bIockado.
111. Tloroforo, llo Commission finds llal lloro is no basis lo llo cIaim
llal inlornalionaI Iav granls individuaIs or groups llo Iiborly lo disrogard
a docIarod, spocifiod, offoclivo, and imparliaI bIockado - moaning, ono
llal fuIfiIIs ils obIigalions tis-.-tis ncuir.|s - soIoIy on counls of ils viov of
llo aIIogod vioIalion of obIigalions tis-.-tis llo cniii suojcci ic i|c o|cc|.!c.
Sucl an approacl can Ioad lo claos in llo roIalions bolvoon slalos and
bolvoon slalos and individuaIs.
394 |!., al paras. 3-4.
396 |!., al ruIo 94.
397 |!., al ruIo 95.
398 |!., al ruIo 100.
399 |!., al ruIo 99.
Chapter A: CnncIusinns
112. Horo vo slaII summarizo llo concIusions llal llo Commission
las roaclod in llis parl of llo roporl:
- Tlo confIicl bolvoon IsraoI and llo Gaza Slrip is an inlornalionaI
armod confIicl.
- IsraoIs 'offoclivo conlroI of llo Gaza Slrip ondod vlon llo
disongagomonl vas compIolod.
- Tlo purposo of llo navaI bIockado imposod by IsraoI on llo Gaza Slrip
vas primariIy a miIilary-socurily ono.
- Tlo navaI bIockado vas imposod on llo Gaza Slrip IavfuIIy, vill
IsraoI compIying vill llo condilions for imposing il.
- IsraoI is compIying vill llo lumanilarian obIigalions imposod on llo
bIockading parly, incIuding llo prolibilion of slarving llo civiIian
popuIalion or provonling llo suppIy of objocls ossonliaI for llo survivaI
of llo civiIian popuIalion and modicaI suppIios, and llo roquiromonl
llal llo damago lo llo civiIian popuIalion is nol oxcossivo in roIalion
lo llo concrolo and dirocl miIilary advanlago anlicipalod from llo
bIockado.
- Tlo imposilion and onforcomonl of llo navaI bIockado on llo Gaza
Slrip doos nol conslilulo 'coIIoclivo punislmonl of llo popuIalion of
llo Gaza Slrip.
- InlornalionaI Iav doos nol givo individuaIs or groups llo froodom lo
ignoro llo imposilion of a navaI bIockado llal salisfios llo condilions
for imposing il and llal is onforcod accordingIy, ospociaIIy vloro a
bIockado salisfios obIigalions lo ncuir.| p.riics, moroIy bocauso in llo
opinion of lloso individuaIs or groups il vioIalos llo dulios of llo parly
imposing llo bIockado vis--vis i|c cniii suojcci ic i|c o|cc|.!c.
Chapter B: The actinns undertaken by
IsraeI tn enInrce the navaI bInckade nn
May 31, 2010
GeneraI
113. On May 31, 2010, a fIoliIIa of six slips vloso slalod doslinalion
vas llo Gaza Slrip approaclod llo coasl of llo Slalo of IsraoI. During May,
llo six slips of llo fIoliIIa Iofl llo porls of IroIand, Turkoy and Grooco, and
lloy joinod logollor al a mooling poinl approximaloIy 30 miIos soull of
Cyprus.
400
Tlo Iargosl of llo slips in llo fIoliIIa vas llo M.ti M.rm.r.,
vlicl slarlod oul from llo porl of IslanbuI and pickod up mosl of ils
passongors al llo porl of AnlaIya, il lad approximaloIy 590 passongors
and crov on board, vlo voro primariIy of Turkisl nalionaIily.
Roporls aboul llo organizalion of llo fIoliIIa bogan al llo ond of
}anuary and llo boginning of Iobruary 2010. Tlo IDIs assossmonl vas
llal llis fIoliIIa vas difforonl from lloso llal procodod il, sinco from llo
iniliaI informalion llal il rocoivod, il lranspirod llal llo fIoliIIa vouId bo
parlicuIarIy Iargo, boll in lorms of sizo (lloro vas laIk of approximaloIy
lon slips), and llo quanlily of passongors and oquipmonl llal llo various
slips couId carry. IsraoI lloroforo mado proparalions, boll from a
dipIomalic viovpoinl in ordor lo provonl llo doparluro of llo fIoliIIa from
llo porls of origin, and from a miIilary viovpoinl, in ordor lo onforco llo
navaI bIockado and provonl llo fIoliIIa from roacling llo Gaza Slrip. Tlo
400 In facl, oigll vossoIs doparlod vill llo purposo oI joining up and reaching Gaza
together. Two vessels were detained along the way Ior various reasons and it was
decided not to wait Ior them: one oI the vessels, the CHALLENGER 2, did not take
part in the Ilotilla due to a technical malIunction and some oI its passengers transIerred
to the Mavi Marmara`s deck, see para. A oI IDF completion response (Nov. 15,
2010), the Iolder containing the exhibit has been marked by the Commission as
Iolder 145 |hereinaIter IDF completion response of 15.11.2010|; the second vessel,
the Rachel Corrie, tried to reach the Gaza Strip at a later stage, Iollowing the events
oI the Ilotilla in question. The ship reached Israel`s shores on Jun. 5, 2010 and aIter
it was requested to stop by the IDF it was oIIered to unload its cargo at the port oI
Ashdod and that the merchandise on board would be transIerred to Gaza Iollowing
inspection, through the land border crossings and this was the case, see decision
1759 oI 32nd Government Treatment oI Rachel Corrie Flotilla to Gaza (Jun. 6, 2010)
as well as the Chief of Staff s Open Door Testimonv of 11.8.2010, supra note 70, at
15.
dipIomalic offorls voro unsuccossfuI, and, consoquonlIy, llo fIoliIIa sol
saiI vill six slips as nolod.
SlorlIy boforo llo fIoliIIa roaclod llo coasl of IsraoI, sovoraI varnings
voro sonl lo llo slips, vlicl slalod llal llo slips voro approacling
llo aroa of a navaI bIockado and lloy voro roquoslod lo lurn back.
Tlo varnings aIso slalod llal insofar as llo slips did nol compIy vill
llis inslruclion, llo IsraoIi navy vouId adopl aII of llo moasuros al ils
disposaI in ordor lo onforco llo navaI bIockado, and oacl of llo varnings
aIso slalod llal aflor socurily inspoclion, il vouId bo possibIo lo sond
llo lumanilarian cargo on board llo slips lo llo Gaza Slrip via llo Iand
crossings. Wlon llo slips roaclod a dislanco of approximaloIy 70 miIos
from llo coasl of AlIil and sliII did nol rospond lo llo varnings, a miIilary
oporalion vas slarlod al 4:26 a.m. lo lako conlroI of llo slips vill forcos
of llo Slayolol 13 unil fasl-roping from loIicoplors and boarding llo
slips from Morona spoodboals of llo IsraoIi navy (a Morona spoodboal is
a vossoI for carrying sorvicomon llal is mado in llo Unilod Slalos, vloro
il is caIIod RHIB for rigid-luIIod infIalabIo boal, is usod by llo Amorican
spociaI forcos, and is claraclorizod by advancod manouvoring capabiIilios
and roacling ligl spoods, loroaflor: Mnrena speedbnats). On llo dock
of llo M.ti M.rm.r., llo IDI soIdiors voro mol vill oxlromo vioIonco.
Tlo ovonls llal foIIovod Iod lo llo doalls of nino of llo parlicipanls of
llo fIoliIIa, injurios lo fifly-fivo ollors and injurios lo nino IDI soIdiors.
On llo docks of llo ollor slips, llo IDI soIdiors oncounlorod Ioss or no
rosislanco, and lloro voro no Ioss of Iivos.
Aflor llo lakoovor of llo slips vas compIolod, llo injurod voro
lakon lo llo various lospilaIs, and llo bodios of llo doad voro lakon lo
llo Abu Kabir Ioronsic Inslilulo, vloro onIy an oxlornaI oxaminalion
vas carriod oul, and lloy voro lransforrod lo Turkoy, al Turkoy's roquosl,
villoul aulopsios boing porformod. Tlo slips and llo ollor parlicipanls
of llo fIoliIIa voro lakon lo Asldod porl, vloro lloy bogan lo arrivo on
May 31, 2010, al 1:00 p.m. Tlo disombarking of llo parlicipanls of llo
fIoliIIa from llo slips conlinuod unliI around 9:45 a.m. on }uno 1, 2010. Al
Asldod, llo parlicipanls of llo fIoliIIa undorvonl a procoss llal incIudod
a socurily clock, issuing a dolonlion ordor (in llo Ianguago of oacl of
llo parlicipanls of llo fIoliIIa), and a modicaI oxaminalion, and somo of
llom undorvonl llo laking of biomolric moasuromonls (llo laking of
fingorprinls and a plolograpl). SubsoquonlIy, llo parlicipanls of llo
fIoliIIa voro lransforrod lo sovoraI prisons vloro lloy voro dolainod. On
}uno 2, 2010, aflor llo Allornoy-GonoraI docidod lo lorminalo llo criminaI
invosligalion llal lo lad ordorod on }uno 1, 2010, and aflor llo approvaI
of llo Supromo Courl vas givon in llis rogard, llo parlicipanls voro
lakon lo Bon-Gurion Airporl and fIovn lo llo counlrios from vlicl llo
fIoliIIa sol saiI.
114. Tlis claplor viII addross in dopll llo ovonls of May 31, 2010 (i.o.,
llo proparalions llal procodod lloso ovonls, llo ovonls llomsoIvos and
llo gravo consoquoncos of lloso ovonls). In llo firsl parl of llis claplor,
vo viII roviov in groalor dolaiI llo facluaI soquonco of ovonls of llo
oporalions carriod oul by IsraoI lo onforco llo navaI bIockado of May 31,
2010, as rovoaIod by llo maloriaIs assombIod by llo Commission and llo
loslimonios loard boforo il. Iirsl, vo slaII addross llo slago of llo IsraoIi
proparalion boforo llo arrivaI of llo fIoliIIa, boll from llo dipIomalic
and socurily viovpoinl. Noxl, vo slaII considor llo dolaiIs of llo
miIilary oporalion ilsoIf. NaluraIIy, vo viII dovolo mosl of llo anaIysis lo
oxamining llo procoss of laking ovor llo M.ti M.rm.r.. Tlo Commission
viII aIso oxamino, aIboil in briof and lo llo oxlonl roquirod for dociding
llo issuos boforo il, llo idonlily of llo parlicipanls of llo fIoliIIa and lloir
aclions during llo slago of proparing for llo fIoliIIa and during llo fIoliIIa
ilsoIf. Wo slaII aIso prosonl llo quoslions llal vo posod during llo courso
of llo Commission's vork, vlicl slaII bo ansvorod in llis roporl.
SubsoquonlIy, vo slaII aIso addross llo Iavs llal appIy lo llo
issuos boforo llo Commission, pursuanl lo inlornalionaI Iav. Tlo IogaI
discussion viII bo dividod inlo a numbor of parls. As nolod abovo, (soo
paras. 31-36), llo Iavs appIicabIo lo onforcomonl of a navaI bIockado aro
llo Iavs of navaI varfaro found, primariIy, in llo San Romo ManuaI. AIso
roIovanl aro llo Iavs and principIos of cuslomary inlornalionaI Iav. In
llis claplor, vo viII addross llo rigll lo ompIoy forco in ordor lo onforco
a navaI bIockado. In llis conloxl, as vo discuss al Iongll boIov, il is
imporlanl lo dislinguisl bolvoon llo uso of forco inlondod ic sicp . tcssc|
and llo uso of forco diroclod al spcci|ic pcrscns aboard llo vossoI.
In llo firsl llroo parls of llo anaIysis in llis claplor, vo discuss llo
Iavs appIicabIo lo llo "capluro" of a vossoI vlon onforcing a bIockado.
In llo fourll parl of llis claplor, vo discuss llo issuo of vlollor llo
forco ompIoyod againsl llo poopIo on llo M.ti M.rm.r. vas consislonl
vill inlornalionaI Iav. Tlis discussion roquiros a dolaiIod anaIysis
of llo Iavs concorning llo slalus of llo fIoliIIa parlicipanls undor
inlornalionaI lumanilarian Iav. In llo fifll parl of llis claplor, addilionaI
considoralions roIalod lo llo ruIos of ongagomonl issuod for llo IDI
oporalion viII bo prosonlod. In llo sixll parl, vo oulIino a numbor of
facluaI and IogaI faclors llal aro roIovanl vlon assossing llo uso of forco
and provido a gonoraI assossmonl of llo uso of forco by llo IDI soIdiors
during llo lakoovor oporalion, incIuding lloir uso of boll IollaI and Ioss-
IollaI voapons.
In llo sovonll parl (paras. 227-234), vo prosonl llo concIusions of
llo dolaiIod anaIysis conduclod by llo Commission vill rospocl lo oacl
inslanco of llo uso of forco in llis ovonl. As slalod abovo, llo Commission
approaclod llo IDI and roquoslod llo loslimonios of aII of llo soIdiors
and commandors vlo usod forcod during llo lakoovor of llo vossoIs.
Tloso slalomonls voro anaIyzod by llo Commission pursuanl lo llo
principIos of inlornalionaI Iav.
IinaIIy, in llo oiglll parl of llis claplor, vo oxamino llo pIanning
and organizalion of llo miIilary oporalion in gonoraI, as voII as llo lraining
and proparalions for il llal voro undorlakon by llo IDI soIdiors, vill llo
goaI of dolormining llo oxlonl lo vlicl lloso proparalions infIuoncod llo
uso of forco during llo ovonls undor considoralion.
The Iacts
The preparatinn stage
!"# 63)7+)3&' /#*&5# )"# &(#5+)3&' *5&8 +' 3')#..34#'%# (#56(#%)3-#
115. Al llo boginning of llis parl, vo slaII prosonl an ovorviov of llo
inloIIigonco llal llo poIilicaI ocloIon and llo IDI lad in lloir possossion
boforo llo 'Winds of Hoavon 7 oporalion bogan. Willin llis framovork,
vo slaII provido somo of llo dolaiIs llal voro knovn boforo llo oporalion
bogan and on llo basis of vlicl llo proparalions for il voro mado.
401
116. In Marcl 2010, navaI inloIIigonco in llo IDI bogan lo produco
inloIIigonco informalion vill rogard lo llo fIoliIIa.
402
In viov of iniliaI pubIic
informalion aboul llo organizalion of llo fIoliIIa llal bogan lo appoar
al llo ond of }anuary 2010, inloIIigonco iloms voro pubIislod on Marcl
4, 2010, vill rogard lo llo invoIvomonl in llo fIoliIIa of an organizalion
401 Il slouId bo monlionod llal informalion galloring sourcos in addilion lo llo onos
monlionod boIov doaIl vill galloring an inloIIigonco picluro of llo ovonl. Soo for
oxampIo GiIad Colon "Tlo IIoliIIa lo Broacl llo Siogo on Gaza" (May 17, 2010), llo foIdor
conlaining llo oxlibil las boon markod by llo Commission as foIdor 28.
402 Soo " Winds of Hoavon 7" (GonoraI Slaff oxporls inquiry by Giora IiIand, }uI. 11, 2010), al
29, markod by llo Commission as oxlibil 5 |loroinaflor 1|c |i|.n! Rcpcrij, for inloIIigonco
compiIalions soo " Winds of Hoavon 7 - prosonlalion of combal pIan principIos" (summary
by IDI oporalions brancl, Oclobor 2010) markod by llo Commission as oxlibil 106
|loroinaflor Opcr.iicns Br.nc| Summ.rj, Dc|cnsc Minisicrs Mcmcr.n!um Appcn!ixcs, supr.
nolo 209, al appondixos 35-37, 43-45, 49.
caIIod Insani Yardim Vakfi, or Humanilarian RoIiof Ioundalion in IngIisl
(loroaflor: IHH), a Turkisl organizalion llal is prolibilod in IsraoI by
Iav. AddilionaI navaI inloIIigonco informalion concornod llo numbor
of parlicipanls in llo fIoliIIa, llo agroomonl of luman riglls aclivisls
and pubIic figuros lo parlicipalo in llo fIoliIIa, llo dalos pIannod for
llo doparluro of llo fIoliIIa, and slalomonls of ils organizors llal lloy
allaclod groal imporlanco lo llo invoIvomonl of llo Turkisl govornmonl,
lloy inlondod lo croalo a modia ovonl in roaI limo and lloy voro avaro
of IsraoIs inlonlion of slopping llo fIoliIIa from roacling Gaza and lloir
ambiguily rogarding lloir rosponso lo sucl an oporalion by IsraoI.
403
On
May 26, 2010, llo inloIIigonco incIudod a slalomonl allribulod lo llo
primo minislor of Turkoy llal any slop llal vouId bo lakon in ordor lo
provonl llo fIoliIIa from roacling Gaza vouId Ioad lo a rosponso vloso
naluro vas uncIoar. On May 29, 2010, inloIIigonco vas pubIislod llal llo
clairman of IHH, BuIonl YiIdirim, vlo vas on llo M.ti M.rm.r. ilsoIf,
said llal llo parlicipanls of llo fIoliIIa did nol lavo any voapons in lloir
possossion, bul lloy inlondod lo rosisl any lakoovor of llo slip by forco. Il
vas aIso roporlod llal lloro voro divors on board llo slip for llo purposo
of Iocaling any damago lo llo slip. On May 30, 2010, inloIIigonco vas
dislribulod lo llo offocl llal llo slips in llo fIoliIIa lad bogun lo movo in
llo diroclion of llo Gaza Slrip and llal, inicr .|i., llo aclivisls on Bc.i 8000
inlondod lo lio llomsoIvos vill clains and slarl a lungor slriko.
404
On
May 30, 2010, al 10:45 p.m., a spociaI inloIIigonco roporl vas vrillon and
dislribulod by IsraoIi navaI inloIIigonco, vlicl slalod llal in llo Iasl fov
lours, llo slalomonls rogarding an inlonlion lo uso plysicaI forco lo rosisl
llo lakoovor lad incroasod, and llal vliIo llo parlicipanls of llo fIoliIIa
omplasizod llal lloro vas no inlonlion of using guns or knivos, lloy lad
varnod of sponlanoous rosponsos lo llo uso of forco againsl llom and
docIarod llal 'il vouId bo difficuIl for llo navaI forcos lo board llo slip.
405
403 |!., on Apr. 6, 2010 il vas slalod llal lloro is a possibiIily llal llo fIoliIIa vouId bo
accompaniod by Turkisl vossoIs. On Apr. 26, 2010 llo inlonlion lo croalo a modia ovonl
in roaI limo vas monlionod, aIong vill llo oxlromo imporlanco allribulod by llo fIoliIIa
organizors lo llo invoIvomonl of llo Turkisl Govornmonl. On May 23, 2010 il vas
monlionod llal a day oarIior, a domonslralion vill muIlipIo parlicipanls vas orcloslralod
by llo IHH al IslanbuIs porl and llal llo fIoliIIa organizors monlionod llal lloy aro
avaro of llo Navys inlonlion lo provonl llo slips arrivaI in Gaza, llougl lloy romainod
vaguo rogarding lloir conducl vlon facing llo IDI soIdiors. On Iob 25, 2010 il vas
monlionod in llo inloIIigonco galloring llal llo organizalions laking parl in llo fIoliIIa
lavo bogun oporaling dirocl broadcasls via saloIIilo and llal llo Marmara las onlorod llo
porl of AnlaIya lo coIIocl passongors. On May 27, 2010 a compiIalion vas pubIislod vlicl
monlionod llal al llo limo il is unknovn vlollor llo passongors aro proparing a backup
pIan lo provonl our forcos lakoovor of llo parlicipaling vossoIs.
404 |!., in compiIalion of May 29, 2010.
405 Soo loIogram form for oporalion Winds of Hoavon 7 by llo NavaI InloIIigonco Division",
Tlo rosoarcl division of navaI inloIIigonco aIso dislribulod sovoraI
documonls, bul llis informalion vas roIalivoIy sparso and did nol clango
llo inloIIigonco picluro.
406
AddilionaI opon inloIIigonco maloriaI vas
pubIislod by llo InloIIigonco and Torrorism Informalion Conlor of llo
IsraoI InloIIigonco Horilago & Commomoralion Conlor (loroaflor: IICC)
back in }anuary, 2010. A documonl pubIislod by IICC on }anuary 19,
2010, monlionod Klalam SavaIla, a Hamas oporalivo in Brilain vlo
Iod llo campaign lo broak llo bIockado on Gaza and vlo is connoclod
vill llo Turkisl IHH organizalion, vlo said on }anuary 17, 2010, on a
silo idonlifiod vill HozboIIal, llal 'a nov convoy of aid vouId Ioavo
for Gaza by soa and llal llis limo (apparonlIy unIiko llo incidonl llal
occurrod in }anuary 2010, in an allompl of ono of llo Iand convoys lo
onlor Gaza via llo Rafal crossing, during vlicl a confronlalion vill
llo Igyplians dovoIopod), 'llo confronlalion vouId bo diroclIy againsl
llo Zionisl onomy.
407
A documonl dalod ApriI 7, 2010, monlionod llo
possibiIily llal llo organizors of llo fIoliIIa look inlo accounl a possibIo
sconario of confronlalions vill llo IsraoIi Navy, and llal lloy inlondod
lo 'provoko IsraoI.
408
On May 26, 2010, llo IICC dislribulod a documonl
oulIining llo claraclor of IHH and indicaling llo organizalions Iinks
vill IsIamic oxlromisls, incIuding llo Hamas and inlornalionaI }iladisls.
Tlo roporl discussod lov llo IHH vas an organizalion vill a radicaI
IsIamic orionlalion llal lad roIalions vill llo Hamas, inicr .|i. llrougl ils
momborslip of llo 'Union of Good CoaIilion (an umbroIIa organizalion
of moro llan fifly IsIamic funds around llo vorId llal lransfor monoy,
inicr .|i., lo llo Hamas) and llal loIpod Hamass propaganda maclino
in Turkoy.
409
A documonl vas dislribulod on May 30, 2010, in vlicl
BuIonl YiIdirim vas quolod as saying, vliIo on llo M.ti M.rm.r., llal
llo youngosl porson on llo M.ti M.rm.r. vas ono yoar oId, and llo
llo foIdor conlaining llo oxlibil vas markod by llo Commission as foIdor 90.
406 Soo Dc|cnsc Minisicrs Mcmcr.n!um Appcn!ixcs, supr. nolo 209, al appondixos 36, 43. On
Apr. 14, 2010 a gonoraI nolico rogarding llo organizalion of a lumanilarian fIoliIIa vas
mado pubIic. Tlo fIoliIIa organizors proparalion for a confronlalion vill IDI forcos vlicl
vouId bo covorod by llo modia vas monlionod on May 16, 2010. Tvo moro documonls
voro dislribulod in inlornaI dislribulion onIy (llal is, llo documonls onIy circuIalod
villin llo rosoarcl doparlmonl ilsoIf): a documonl doaIing vill llo aclivilios of llo IHH
organizalion vas pubIislod on May 24, 2010. Tlo documonl discussos llo organizalions
aclivilios as a non-govornmonlaI organizalion inlondod lo aid MusIim communilios
llrougloul llo vorId. On May 26, 2010 a documonl vas dislribulod vlicl monlionod llo
slalomonl allribulod lo Turkisl Irimo Minislor Rocop Tayyip |r!cg.n i|.i sicps un!cri.|cn
ic |.|i i|c ||cii||. ucu|! mcci uii| . rc.ciicn.
407 Soo ||CC rcpcri (}an. 19, 2010), supr. nolo 83, al 5, ||CC rcpcri (}an. 31, 2010), |!., al 1, ||CC
rcpcri (Apr. 7, 2010), |!., al 3.
408 ||CC rcpcri (Apr. 7, 2010), |!., al 3.
409 ||CC rcpcri (May 26, 2010), |!., soo aIso idonlicaI roporl dislribulod on May 27, 2010.
oIdosl voro oiglly yoars oId, and llal aIllougl lloir rosislanco vouId
nol bo vioIonl, lloy vouId nol aIIov IsraoIi forcos lo board llo slip.
410

Tlo documonl aIso said llal llo organizors of llo fIoliIIa oxprossod lloir
dosiro llal llo confIicl vill llo Navy vouId lako pIaco in dayIigll so
llal llo modia couId documonl il and in ordor lo croalo vavos in llo
inlornalionaI modia.
411
AddilionaI roporls vlicl voro dislribulod roIalo
moslIy lo lumanilarian aid issuos, llo oquipmonl llal llo organizors of
llo fIoliIIa inlondod lo bring lo llo Gaza Slrip, and llo pubIic figuros and
aclivisls llal vouId lako parl in llo fIoliIIa.
412
Tlo Mossad vas askod by IsraoIi NavaI InloIIigonco lo sond il
informalion, vlicl il did.
On May 11, 2010, a roporl vas rocoivod from llo NalionaI Socurily
CounciI llal according lo a roporl in llo IaIoslinian modia, llo primo
minislor of Turkoy, Rocop Irdogan, mol vill llo organizors of llo fIoliIIa
and said 'romoving llo bIockado vas lop of Turkoys priorilios.
413
D#%363&' &* )"# (&.3)3%+. #%"#.&'
117. As a ruIo, 'Winds of Hoavon oporalions - a procoduro llal vas
formuIalod by llo IDI in ordor lo doaI vill llo plonomonon of fIoliIIas
lo Gaza
414
- voro approvod by llo poIilicaI ocloIon, namoIy llo Irimo
Minislor and llo Minislor of Dofonso. In llo courso of formuIaling llo
pIan for llo 'Winds of Hoavon' oporalion, llo IDI lad considorod various
aIlornalivos for soizing llo vossoIs, and llo possibiIilios for porforming a
"coId slop" of llo vossoIs lad provon lo bo impraclicaI. Hovovor, llo navy
lad boon succossfuI in slopping slips by laking conlroI of llom, vlollor
by cIimbing aboard lloir docks from smaII boals llal camo aIongsido llo
slips, and by rappoIIing from a loIicoplor diroclIy onlo llo dock or llo
bridgo (a driII caIIod "fasl-ropo").
Tloroforo, on ApriI 22, 2010, a discussion vas loId on llo quoslion
of llo fIoliIIa vlicl is llo subjocl of llis roporl, againsl a background of
410 ||CC rcpcri (May 30, 2010), |!., al 2, vlicl roforoncos llo IHH organizalions officiaI
vobsilo. Soo aIso 1|c |i|.n! Rcpcri, supr. nolo 402, al 32.
411 Soo ||CC rcpcri (May 30, 2010), supr. nolo 83, al 2, vlicl roforoncos a novs slory on AI
}azoora from May 29, 2010 as voII as an inlorviov on llo IHH organizalions opon clannoI
from May 30, 2010.
412 Soo, for oxampIo ||CC rcpcri (May 11, 2010) |!., Soo aIso 1|c |i|.n! Rcpcri, supr. nolo 402, al
32.
413 Soo Dc|cnsc Minisicrs Mcmcr.n!um Appcn!ixcs, supr. nolo 209, al appondix 39.
414 Soo paras. 24-27 abovo in llis roporl, soo aIso ""Winds of Hoavon" - GonoraI Slaff IIan", in
rosponso lo llo compIolion roquosl of Doc. 29, 2010, llo foIdor conlaining llo oxlibil vas
markod by llo Commission as foIdor 167 |loroinaflor 1|c Gcncr.| Si.|| P|.nj.
inloIIigonco survoys llal voro proparod, al llo vookIy mooling llal look
pIaco al llo offico of llo Minislor of Dofonso vill llo parlicipalion of IDI
officors.
415
Tlo IDIs posilion al llo mooling vas llal if llo dipIomalic
offorl lo provonl llo fIoliIIa solling saiI vas unsuccossfuI, lloro vouId
bo no aIlornalivo bul lo provonl llo fIoliIIa from roacling llo Gaza Slrip
in a miIilary oporalion, vlicl vouId roquiro laking conlroI of llo slips.
Al an addilionaI mooling llal look pIaco on May 6, 2010, llo Minislor of
Dofonso approvod llo ovoraII formal of llo oporalion, ovon llougl lo
gavo inslruclions llal llo proparalions for llo fIoliIIa slouId bo submillod
for llo approvaI of llo Irimo Minislor, logollor vill llo Minislor of IubIic
Socurily, llo Minislor of Ioroign Affairs, and llo Minislor of llo Inlorior.
416

Al llo mooling llal look pIaco on May 13, 2010, llo oporalion ordor vas
prosonlod lo llo Minislor of Dofonso.
417

On May 26, 2010, llo Irimo Minislor, Mr. Bonjamin Nolanyalu,
raisod llo issuo of llo fIoliIIa for discussion in llo forum of llo 'Soplol
(an innor cabinol llal incIudos llo sonior poIilicaI-socurily ocloIon and
porsons vill oxporionco in lloso fioIds).
418
Tlis discussion vas nol
pIannod in advanco. Tlo minislors llal parlicipalod in llo discussion
supporlod provonling llo fIoliIIa from roacling llo Gaza Slrip. Al llo
ond of llo discussion, llo Irimo Minislor askod llo Minislor of Dofonso lo
conconlralo upon llo inlor-minisloriaI proparalions and llo proparalions
of aII of llo parlios in llo oporalion, as a rosuIl of lis oxpoclod lrip abroad
a slorl limo aflor llal mooling.
419
On llo samo day, a mooling look pIaco al llo offico of llo Minislor
of Dofonso vill roprosonlalivos of various onlilios and Govornmonl
minislrios llal voro invoIvod in llo proparalions for llo oporalion,
incIuding llo Minislry of Ioroign Affairs, llo Minislry of llo Inlorior, llo
Minislry of IubIic Socurily, llo Minislry of }uslico, IDI officors and pubIic
roIalions porsonnoI.
420
Al llis mooling, llo Commandor of llo IsraoI Navy
roviovod llo proparalions of llo forcos for llo oporalion. An addilionaI
mooling llal look pIaco al llo offico of llo Minislor of Dofonso on llo
samo day addrossod llo issuo of pubIic roIalions in llo conloxl of llo
415 Dc|cnsc Minisicrs Mcmcr.n!um, supr. nolo 176, al 32-34.
416 |!., al 34-35.
417 |!., al 35.
418 Discussion rogarding proparalion for llo fIoliIIa lo Gaza (IrolocoI of soplol forum
mooling, May 26, 2010).
419 |!., al 45.
420 Soo summary of mooling al Dofonso Minislors offico "Iroparalion and Roadinoss of Iorcos
for Winds of Hoavon - Dofonso Minislors Summary" (May 26, 2010), prolocoI of mooling
"Winds of Hoavon - Iarl A", llo foIdor vloro llo oxlibils aro found vas markod by llo
Commission as foIdor 28. Soo aIso Dc|cnsc Minisicrs Mcmcr.n!um, supr. nolo 176, al 53.
proparalions and dopIoymonl for llo oporalion.
421
IoIIoving llis, on May
27, 2010, llo Minislry of Ioroign Affairs sonl a documonl lo aII of IsraoIs
roprosonlalions abroad.
422
On May 27, 2010, al a vookIy updalo mooling
llal look pIaco al llo offico of llo Minislor of Dofonso, llo Minislor of
Dofonso said llal lo vas improssod by llo ligl IovoI of proparalion of
llo forcos and onlilios for doaIing vill llo fIoliIIa, discussod llo oxpoclod
confronlalion vill llo fIoliIIa aclivisls and llo pubIic roIalions difficuIly
prosonlod by llo incidonl.
423

!"# 13(.&8+)3% +))#8()6 )& (5#-#') )"# *.&)3..+ *5&8 1#(+5)3'4
118. Irom llo maloriaIs boforo llo Commission, il can cIoarIy bo soon
llal during llo poriod boforo llo fIoliIIa sol saiI, many dipIomalic movos
voro mado, al various IovoIs and lo various counlrios, in ordor lo provonl
llo fIoliIIa's doparluro for Gaza.
Tlus, for oxampIo, llo Irimo Minislor, Mr. Bonjamin Nolanyalu,
said in lis loslimony boforo llo Commission llal in viov of llo oxpoclod
scaIo of llo fIoliIIa, a 'spociaI dipIomalic offorl vas mado lo lry lo provonl
il from roacling llo Gaza coasl and lo divorl il lo Asldod or llo II-Arisl
porl vloro il vouId unIoad llo lumanilarian oquipmonl and lransporl il
via llo Iand crossings.
424
Tlo Irimo Minislor vonl on lo say llal in May
dipIomalic movos voro mado conlinuousIy lo many counlrios, incIuding
counlrios vloso cilizons voro on board llo vossoIs in llo fIoliIIa, or
vloso porls voro usod al any slago by llo vossoIs in llo fIoliIIa. Tlo
Irimo Minislor furllor said llal dipIomalic offorls voro aIso mado lo llo
Unilod Nalions and Turkoy, sinco many of llo fIoliIIas parlicipanls voro
Turkisl cilizons. In llis conloxl, llo Irimo Minislor said llal lis offico
mado dirocl conlacls vill 'llo liglosl IovoIs of llo Turkisl Govornmonl,
incIuding Turkisl Irimo Minislor, Rocop Irdogan, limsoIf, moroovor, llo
Irimo Minislor said llal on May 27, 2010, lo porsonaIIy conlaclod a sonior
figuro in llo Igyplian Govornmonl, vill a roquosl llal Igypl vouId
spoak vill llo Turkisl Govornmonl.
425
In lis cIassifiod loslimony boforo
421 Soo summary of mooling al Dofonso Minislors offico ""Winds of Hoavon" - IubIicily -
Dofonso Minislors Summary" (May 27, 2010), prolocoI of mooling "Sky Winds - Iarl A",
llo foIdor vloro llo oxlibils aro found vas markod by llo Commission as foIdor 28, Soo
aIso Dc|cnsc Minisicrs Mcmcr.n!um, supr. nolo 176, al 53.
422 Announcomonl by llo Ioroign Offico spokosporson lo IsraoIi roprosonlalivos (May 27,
2010), Dc|cnsc Minisicrs Mcmcr.n!um Appcn!ixcs, supr. nolo 209, al appondix 60/2.
423 Soo prolocoI of vookIy silualion oslimalo al Dofonso Minislors offico "Oporalions and
Ixcursions + vookIy Silualion Islimalo" (May 27, 2010), llo foIdor vloro llo oxlibils
aro found vas markod by llo Commission as foIdor 28, soo aIso Dc|cnsc Minisicrs
Mcmcr.n!um, supr. nolo 176, al 54.
425 |!., al 9.
llo Commission, llo Irimo Minislor gavo prociso dolaiIs of llo naluro
and liming of llo dipIomalic movos.
426
Dospilo lloso aclions, llo Irimo
Minislor ondod by saying llal 'AII llo offorls Iod lo nolling.
427
Tlo Minislor of Dofonso, Iioulonanl-GonoraI (ros.) Ilud Barak, aIso
loslifiod rogarding llo dipIomalic movos llal voro inlondod lo provonl
llo fIoliIIa from solling saiI:
'Tlrougloul llo aforosaid poriod, lloro vas oxlonsivo dipIomalic
aclivily on llo parl of llo Irimo Minislor, llo Minislry of Ioroign
Affairs, sonior officiaIs in llo Minislry of Dofonso and llo IDI
and aIso by mo, in an offorl lo bring aboul llo cancoIIalion of
llo fIoliIIa, lo slop il or Iimil il. In llo lvo vooks prior lo llo
arrivaI of llo Turkisl fIoliIIa, I discussod llo mallor vill llo
roprosonlalivo of llo Quarlol, Tony BIair, llo onvoy of llo UN
Socrolary-GonoraI, Roborl Sorry, llo load of Igypls GonoraI
InloIIigonco, llo Grook Ioroign Minislor, llo Turkisl Ioroign
Minislor, llo Irisl Ioroign Minislor, llo Turkisl Ambassador
in IsraoI and sovoraI ollors vlo, bocauso of llo naluro of lloir
dipIomalic conlacls roquoslod llal lloir namos slouId nol bo
monlionod. RogrollabIy, lloso major dipIomalic offorls did nol
Ioad lo llo rosuIl llal vo vanlod.
428
In lis cIassifiod loslimony, llo Minislor of Dofonso vonl on lo givo
dolaiIs of llo dipIomalic conlacls vill Turkoy immodialoIy boforo llo
fIoliIIa sol saiI in an allompl lo provonl ils doparluro. Horo, lo discussod
llo dipIomalic conlacls vill llo Turkisl roprosonlalivos in llo Unilod
Slalos, vill sonior officiaIs in Igypl, Cyprus and llo Unilod Slalos, and
vill sonior officiaIs in llo Turkisl Govornmonl ilsoIf.
429
AddilionaI dolaiIs of llo purposos, naluro, and dalos of llo
dipIomalic conlacls voro givon lo llo Commission in llo loslimony of llo
formor diroclor-gonoraI of llo Minislry of Ioroign Affairs, Ambassador
Yossi GaI. In lis loslimony, llo diroclor-gonoraI of llo Minislry of Ioroign
Affairs discussod lov during llo vloIo poriod of llo dipIomalic offorls
IsraoI omplasizod limo and again llo oxislonco of llo navaI bIockado and
llo facl llal, as a ruIo, IsraoI doos nol provonl llo onlry of lumanilarian
oquipmonl inlo Gaza, subjocl lo a socurily inspoclion al llo Iand crossings.
430

426 Transcripl of sossion no. 2 "Toslimony of llo Irimo Minislor, CIoso doors" (Aug. 26, 2010)
|loroinaflor Primc Minisicrs C|csc! Dccr 1csiimcnj.
428 Dc|cnsc Minisicrs Opcn Dccr 1csiimcn, supr. nolo 70, al 43-44.
429 Transcripl of sossion no. 3 "Dofonso Minislors CIosod Door Toslimony" (Aug. 10, 2010),
al 7-8, markod by llo Commission as oxlibil 85 |loroinaflor Dc|cnsc Minisicrs C|csc! Dccr
1csiimcnj.
430 Transcripl of sossion no. 10 "Toslimony of llo Diroclor GonoraI of llo Minislry of Ioroign
Affairs" (Sop. 15, 2010), al 5, 7, |loroinaflor Opcn Dccr 1csiimcn c| i|c Dirccicr Gcncr.| c| i|c
Tlo diroclor-gonoraI of llo Minislry of Ioroign Affairs doscribod in lis
loslimony llo scopo of llo conlacls llal voro mado vill roprosonlalivos
in various capilaIs (incIuding Waslinglon, Nicosia, Allons, DubIin,
Iondon, SlockloIm and ollor capilaIs), conlacls vlicl, according lo lis
loslimony, bogan many vooks boforo llo marilimo incidonl and conlinuod
unliI a slorl limo boforo llo fIoliIIa arrivod.
431
Ho vonl on lo say llal al
a mooling vill ambassadors of llo lvonly-sovon mombor slalos of llo
Iuropoan Union on May 23, 2010, lo raisod llo issuo of llo fIoliIIa vill
llom, and llal ovon aflor llis anollor round of approaclos vas mado, in
vlicl dipIomalic Iollors voro sonl lo roprosonlalivos of counlrios llal voro
prim. |.cic abIo lo loIp.
432
Tlo diroclor-gonoraI of llo Minislry of Ioroign
Affairs aIso said llal slorlIy boforo llo fIoliIIa sol saiI, llo ambassadors of
llo counlrios from vlicl llo fIoliIIa slips doparlod voro summonod by
lim and anollor mossago vas sonl lo lloso counlrios. Tloso offorls voro
nol fruilfuI, oxcopl vill rospocl lo Cyprus, vlicl announcod in May llal
il vouId nol pormil llo fIoliIIa's vossoIs lo anclor in ils porls.
433
Tlo diroclor-gonoraI of llo Minislry of Ioroign Affairs discussod in
lis loslimony llo inlonsivo dipIomalic aclivily llal vas diroclod al Turkoy
ilsoIf, al aII IovoIs and in aII sploros.
434
Tlo diroclor-gonoraI of llo Minislry
of Ioroign Affairs vonl on lo doscribo in lis loslimony sovoraI proposaIs
llal voro sonl llal voro mado bolvoon IsraoI and Turkoy, incIuding
IsraoIs consonl lo llo proposaI of llo Turkisl ambassador lo llo Unilod
Slalos (vlicl vas mado lo llo IsraoIi Imbassy in llo Unilod Slalos)
llal il vouId bo llo Rod Crosconl llal vouId rocoivo llo lumanilarian
oquipmonl from il al llo Iand crossings, bul lloso proposaIs voro aIso
rojoclod.
435
Tlo diroclor-gonoraI of llo Minislry of Ioroign Affairs aIso
said llal llo scaIo of llo conlacls vill Turkoy vas oxcoplionaI. In lis
vords:
Minisir c| Icrcign A||.irsj.
431 |!., al 7.
432 Soo aIso Iollor from GiIad Colon, Coordinalion managor, Ioroign Minislry, lo Tlo IubIic
Commission lo Ixamino llo Marilimo Incidonl of May 31, 2010 (Nov. 22, 2010).
433 Soo "Conconlralion of OfficiaI Addrossos lo Cyprus and addilionaI maloriaIs" submillod
lo llo Commission by llo Ioroign Minislry, markod by llo Commission as oxlibil 60, soo
C|ic| c| Si.||s Opcn Dccr 1csiimcn c| 11.8.2010, supr. nolo 70, al 14.
434 Transcripl of sossion no. 10 "CIoso door Toslimony of llo Diroclor GonoraI of llo Minislry
of Ioroign Affairs (Sop. 15, 2010) |loroinaflor C|csc! Dccr 1csiimcn c| i|c Dirccicr Gcncr.|
c| i|c Minisir c| Icrcign A||.irsj.
435 |!., A documonl vlicl loslifios lo llis offor vas sonl by llo IsraoIi ambassador lo
Waslinglon D.C.s offico diroclor, on Mar. 19, 2010, namod subjocl: llo IIoliIIa lo Gaza, soo
Iollor from Iior Woinlraub, Waslinglon D.C. Ambassadors offico diroclor lo llo Diroclor
GonoraI of llo Minislry of Ioroign Affairs (Mar. 19, 2010), Dc|cnsc Minisicrs Mcmcr.n!um
Appcn!ixcs, supr. nolo 209.
'Wo lriod ovory possibIo clannoI lo provonl llo fIoliIIa from
doparling. In oacl of llo vory many convorsalions, llo Minislor
of Dofonso and llo Turkisl Ioroign Minislor, from mo lo my
Turkisl counlorparl, llo ombassios in Waslinglon and Ankara,
and aII of llo ollor conlacls, lloro vas a cIoar allompl lo proposo
a soIulion for llo slips, lo proposo a soIulion for llo oquipmonl
on llo slips, and al no slago vas a posilivo rosponso rocoivod.
436
Il slouId aIso bo nolod llal dipIomalic offorls voro aIso mado by
llo miIilary. Tlo Commandor of llo IsraoIi Navy loId a porsonaI mooling
vill llo miIilary allacls of Turkoy and Grooco and vrolo porsonaI
Iollors lo llo Commandors of lloir navios, sonior officors loId moolings
vill miIilary allacls, a briofing vas loId vill aII IDI allacls, and so
forll.
437
In llo lvo vooks boforo llo fIoliIIa arrivod, llo IIanning Division
of llo IDI aIso incroasod ils invoIvomonl. Tlo Iiaison Doparlmonl
in llo IIanning Division bogan a sorios of discussions vill various
inlornalionaI organizalions, incIuding llo Rod Cross, UNIIII (llo Unilod
Nalions Inlorim Iorco in Iobanon) and UNDOI (llo Unilod Nalions
Disongagomonl Obsorvor Iorco llal is slalionod on llo IsraoIi-Syrian
bordor), as voII as discussions vill sovoraI counlrios, mainIy Igypl and
}ordan. Tlo purposo of lloso vas lo proparo llo vay for llo possibiIily
llal lloso counlrios vouId nood lo assisl in rocoiving parlicipanls of llo
fIoliIIa aflor lloy vouId bo doporlod from IsraoI, and aIlornalivoIy in
doaIing vill any of llo parlicipanls vlo is a cilizon of a counlry vill
vlom IsraoI las nol dipIomalic roIalions. Tlo IIanning Division aIso sonl
communicalions lo aII of llo foroign miIilary allacls in IsraoI and llo
IDI allacls abroad.
438
!"# :DE26 (5#(+5+)3&'6 *&5 )"# ,F3'16 &* ;#+-#' G2 &(#5+)3&'
119. Tlo miIilary proparalions carriod oul by llo IDI lo onforco llo
navaI bIockado viII bo roviovod from lvo main porspoclivos: (1) llo
IogaI proparalions, vlicl voro an inlograI parl of llo proparalory vork
prior lo llo oporalion, (2) llo miIilary proparalions llomsoIvos, i.o., llo
oporalion ordor, llo soIdiors briofings and llo ruIos of ongagomonl
llal voro dolorminod for llo oporalion, vill spociaI allonlion lo llo
imporlanco allaclod lo llo vaIuo of luman Iifo in llo proparalions for llo
oporalion. Il slouId bo cIarifiod llal llis claplor viII nol roviov aII of llo
436 Soo C|csc! Dccr 1csiimcn c| i|c Dirccicr Gcncr.| c| i|c Minisir c| Icrcign A||.irs, supr. nolo
434, al 15.
437 1|c |i|.n! Rcpcri, supr. nolo 402, al 49, Ior dolaiIs of miIilary-dipIomalic conlacls soo
Opcr.iicns Br.nc| Summ.r, supr. nolo 402.
438 1|c |i|.n! Rcpcri, supr. nolo 402.
proparalions for llo oporalion, bul onIy llo aspocls llal aro roIovanl lo
llo quoslions boforo llo Commission.
As can bo soon from llo maloriaI boforo llo Commission, llo IDI
carriod oul proparalory vork boforo llo fIoliIIa arrivod, and il omplasizod
llo nood lo avoid, insofar as possibIo, llo uso of forco for llo purposo of
slopping llo slips parlicipaling in il. Il is cIoar llal llo MiIilary Advocalo-
GonoraIs Offico vas vory mucl invoIvod in llo proparalion procoss and
llal ils rocommondalions voro nolod and incorporalod in llo oporalion
ordors and llo various procoduros llal voro dolorminod prior lo llo
oporalion. Wo soo from llo documonls and llo loslimonios a ligl IovoI of
avaronoss of aII of llo porsons invoIvod, al aII IovoIs, of llo nood lo carry
oul llo oporalion villoul any injurios lo llo parlicipanls of llo fIoliIIa.
Hovovor, il slouId bo nolod llal vo soo from llo maloriaI boforo llo
Commission llal llo IovoI of vioIonl rosislanco on llo parl of llo fIoliIIa
parlicipanls llal vas anlicipalod by llo IDI prior lo llo oporalion vas
cIoarIy undoroslimalod.
120. 1|c |cg.| prcp.r.iicns. As nolod in claplor A, llo uso of a navaI
bIockado in ordor lo givo llo IDI aII of llo looIs and povors roquirod
lo provonl llo passago of slips lo llo Gaza Slrip vas rocommondod by
llo MiIilary Advocalo-GonoraI back in 2008, vlon llo proparalions for
llo 'Winds of Hoavon 1 oporalion bogan. In llal conloxl, llo MiIilary
Advocalo-GonoraI roquoslod llo opinion of llo Allornoy-GonoraI.
439

Willin llo conloxl of llo proparalions for llo 'Winds of Hoavon
7 oporalion, vo cIoarIy soo llo invoIvomonl of llo MiIilary Advocalo-
GonoraIs Offico in llo pIanning procoss carriod oul by llo Cliof of Slaff
IovoI and llo Navy, in proparing IogaI opinions on various miIilary issuos, in
formuIaling a IogaI annox for llo oporalion ordors and in coordinaling llo
IogaI posilion vill parlios oulsido llo IDI.
440
Tlo opinions survoyod, inicr
.|i., llo aullorily llo Navy couId uso vis--vis foroign slips off llo coasl
of Gaza, llo confiscalion of slips pursuanl lo llo Iavs of var in gonoraI,
and bocauso of a broacl of llo navaI bIockado in parlicuIar, procoduros
for doaIing vill lumanilarian oquipmonl llal vas soizod on a slip llal
439 Iollor from llo Cliof MiIilary Advocalo GonoraI, Brigadior GonoraI Aviclai MondoIbIil lo
llo Govornmonls Allornoy GonoraI (Aug. 11, 2008), 1|c |i|.n! Rcpcri, supr. nolo 402, al
151.
440 Soo C|ic| c| Si.||s Opcn Dccr 1csiimcn c| 11.8.2010, supr. nolo 70, al 51: I llink, bul il
musl bo cIoar llal vo, aII llo aclivily, from llo slago of combal prolocoI, from llo slago of
pIanning, and llrougloul aII llo slagos of llo oporalion and ils various slagos, incIuding
quoslions llal slommod from oxoculion and incIuding proparalion aflorvard, as a sol
mollod. By llo vay, and nol in a spociaI vay, llo MiIilary Advocalo GonoraI is inlogralod
in inlo llo oporalionaI pIanning compononls of llo IDI, a day lo day mallor. Tloy aro parl
of our oporalionaI prosonlalions. In llo branclos and in llo GonoraI Slaff".
broaclod a navaI bIockado, and so forll. Moroovor, llo MiIilary Advocalo-
GonoraIs Offico addrossod llo quoslion of llo uso of Ioss-IollaI voapons
during llo oporalion, and il gavo spocific approvaI for llo voapons llal
voro usod in llo oporalion.
441
Tlo MiIilary Advocalo-GonoraIs Offico
aIso addrossod llo quoslion of imposing communicalions bIackouls
during llo oporalion
442
and llo issuo of llo IDI rocoiving assislanco from
441 Soo aIso 1|c |i|.n! Rcpcri, supr. nolo 402, al 152-163.
Tlo MiIilary Advocalo GonoraI vas llo ono llal drov llo allonlion of llo roIovanl IDI
aullorilios lo llo nood lo compIolo approvaI procossos for llo uso of Ioss-IollaI voapons
inlondod for uso in llo oporalion. As parl of a discussion llal look pIaco on May 17, 2010
and vlicl doaIl vill llo uso of Ioss-IollaI voapons villin llo Winds of Hoavon 7
oporalion, llo roprosonlalivos of MAG prosonlod llo IogaI framovork for llo uso of llo
Ioss-IollaI voapons villin llo oporalion in Iigll of llo ruIos of combal and llo llroo lorms
vlicl musl bo mol as a condilion for ompIoying sucl moans, llal is, llo approvaI llal
sucl moans aro nol IollaI, dolormining of approprialo safoly and oporalionaI ruIos for
llo silualion vloro il is inlondod lo bo usod, and llo quaIificalion of soIdiors oxpoclod lo
mako uso of llo moans, soo MAG pcsiiicn p.pcr - Appcn!ix, supr. nolo 77, soo aIso 1|c |i|.n!
Rcpcri, supr. nolo 402, al 155-156.
442 On llo spocific IovoI, MAG sourcos oxprossod lloir opinion llal il is possibIo, villin llo
oporalion, lo mako uso of a numbor of moans roguIarIy ompIoyod by llo IDI and llo
uso of painlbaIIs and laIc- baIIs vas ruIod oul. Somolimo aflor llo said discussion,
llo oporalionaI oIomonls askod llal llo uso of lloso lvo moans bo aIIovod, in ordor lo
onabIo a gradod oporalion of Ioss-IollaI voapons (among llo moans approvod in said
discussion nono of llo moans couId lavo boon ompIoyod againsl spocific poopIo unIoss
ompIoyod al zoro rango, oxcIuding llo sofl bag. Bul llis vas a roIalivoIy aggrossivo
moans and so llo oporalionaI oIomonls proforrod nol lo uso il as a firsl moans). On May
27, 2010 llo MAG dislribulod a dolaiIod opinion vloro llo IogaIily of ompIoying lloso
moans vas oxaminod. In Iigll of llo Cliof ModicaI Officors posilion llal llo IikoIilood
llal llo ompIoymonl of lloso voapons, in accordanco vill llo oporalionaI inslruclions
dolorminod, vouId causo an irrovocabIo or falaI injury is Iov, llo uso of lloso moans
vas approvod, vliIo dofining llo ruIos of oporalion dolorminod for llom, llo approvaI
for lloir uso by soIdiors from spocific unils onIy, and an inslruclion lo lrain llo soIdiors
oquippod vill llis voapon. Al llo samo limo il vas monlionod llal duo lo limo conslrainls
a formaI profossionaI ordor rogarding llo uso of lloso voapons vas nol consoIidalod, nor
vas a formaI profossionaI ordor consoIidalod rogarding llo lraining of llo soIdiors, and
llal llis is nol llo mannor in vlicl llo procoss of rocoiving a Ioss-IollaI voapon inlo llo
IDI slouId bo conduclod. Tloroforo, approvaI vas granlod for llo ompIoymonl of lloso
voapons villin oporalion Winds of Hoavon 7 onIy and il vas rocommondod llal an
organizod procoss of rocoiving lloso moans bo sol inlo molion. Soo summary of mooling
loadod by llo Navys Informalion Socurily Brancl Hoad IogaI Aspocls in llo Issuo of
Using Ioss-IollaI Woapons in Oporalion 'Winds of Hoavon 7 (27.5.2010), Appondix 14
of llo MAG pcsiiicn p.pcr - Appcn!ix, supr. nolo 77.
On May 18, 2010 llo MiIilary Advocalo GonoraIs Doparlmonl of
InlornalionaI Iav roIoasod a firsl IogaI roforonco lo llo possibiIily of oxoculing sucl
bIocks vloro il vas monlionod llal lloro is no fundamonlaI IogaI lindranco in lorms
of inlornalionaI Iav from porforming bIocks / disrupling llo spocific communicalions
dolaiIod, oxcIuding llo bIocking of GIobaI Iosilioning Sysloms (GIS) broadcasls,
rogarding vlicl il vas monlionod llal in llo absonco of a sufficionl facluaI basis lloir
IogaIily cannol bo quoslionod. Tlo roIovanl IogaI appondix vas aIso allaclod lo llo opinion
rogarding llo various aspocls of bIocking communicalion. Tlis appondix vas allaclod
lo llo IogaI appondix lo llo ordor, bul nol lo llo communicalion bIocking appondix of
llo IsraoI Irison Sorvico and llo IsraoI IoIico during llo oporalion.
443
Tlo
MiIilary Advocalo-GonoraIs Offico vas aIso invoIvod in formuIaling llo
finaI vording of llo communicalions llal voro lransmillod lo llo slips
boforo lloy voro lakon ovor. Tlo MiIilary Advocalo-GonoraIs Offico
aIso proparod a IogaI annox lo llo oporalion ordor llal incIudod ruIos
of conducl for llo forcos, ruIos of ongagomonl for llo oporalion, and
aIso ruIos for carrying oul oIoclronic scrooning moasuros, incIuding an
approvod Iisl of bIackouls llal couId bo impIomonlod.
444
llo ordor, soo Communicalion BIocks villin Oporalion 'Winds of Hoavon 7 (MAG
opinion, May 18, 2010), appondix 12 of llo MAG pcsiiicn p.pcr - Appcn!ix, supr. nolo 77.
Il slouId aIso bo monlionod llal on May 30, 2010 llo AdaIal organizalion approaclod
llo Govornmonls Allornoy GonoraI and llo Cliof MiIilary Advocalo GonoraI rogarding
llo oIoclronic scrooning againsl llo fIoliIIa lo Gaza. In llo organizalions Iollor a cIaim
vas raisod llal llis scrooning vas inlondod lo provonl llo broadcasl of larsl imagos
from llo lakoovor of llo fIoliIIa vossoIs vlicl couId larm IsraoIs imago and llal, as far
as llis scrooning larms llo abiIily lo broadcasl dislross signaIs or lindors llo abiIily lo
navigalo, il conslilulos a llroal lo llo Iivos of llo passongors on llo slips. IoIIoving llis,
and al llo roquosl of llo MAG, an urgonl discussion vas loId vill llo parlicipalion of
various oIomonls in llo Navy and loadod by llo Navys Cliof of Slaff. In llo discussion
llo oporalionaI capabiIilios of llo Navy voro prosonlod rogarding llo bIocking of llo
vossoIs communicalion clannoIs and llo mannor in vlicl lloso capabiIilios aro oxorcisod
during llo oporalion. Il vas omplasizod llal llrougloul llo oporalion llo vossoIs abiIily
lo movo safoIy vouId nol bo lindorod and llal in caso of dislross a rosponso vouId bo
givon by a noarby Navy vossoI. In Iigll of lloso llo MAGs Doparlmonl of InlornalionaI
Iav roIoasod a rosponso Iollor lo llo AdaIal organizalion llal samo day vloro il vas
monlionod llal lloro is no possibiIily lo rovoaI llo oporalionaI moans and mollods vlicl
viII bo ompIoyod by llo IDI in ils aclions, bul villin llo framovork of ompIoying llo
various moans al llo IDIs disposaI, llo cliof considoralion is provonling llo risk lo
luman Iifo al soa, and llo possibiIily lo caII for loIp al limos of dislross. 1|c |i|.n! Rcpcri,
443 In ils opinion of May 17, 2010 MAGs Doparlmonl of ConsuIlalion and IogisIalion slalod
llal in ils opinion lloro is no provonlion from llo IoIico and Irison Sorvico forcos assisl
llo IDI in oxoculing aclions lo onforco llo bIockado sinco llo Iavs of var do nol Iimil a
slalo in llo cloico of armod forcos parlicipaling on ils bolaIf in llo onforcomonl of llo
Iavs of var, soo IsraoIi IoIico and Irison Sorvico Assislanco lo IDI During Oporalion
'Winds of Hoavon 7 (Opinion by llo MAG, May 17, 2010), al appondix 11 of llo MAG
pcsiiicn p.pcr - Appcn!ix, supr. nolo 77. In Iigll of difforoncos of opinion llal lad brokon
oul bolvoon llo MAG and oIomonls in llo Minislry of }uslico and llo Minislry of Dofonso
rogarding llo incorporalion of llo Masada unil, a spociaI unil of llo Irison Sorvico, llo
Cliof MiIilary Advocalo GonoraI approaclod llo Allornoy GonoraI on May 24, 2010 in
ordor lo rocoivo lis IogaI approvaI lo incorporalo llo Masada unil inlo llo oporalion, soo
Iollor from llo Cliof MiIilary Advocalo GonoraI, Brigadior GonoraI Aviclai MondoIbIil lo
Allornoy Yoluda Woinsloin, Allornoy GonoraI (May 24, 2010), al appondix 13 of llo MAG
pcsiiicn p.pcr - Appcn!ix, supr. nolo 77. Said approvaI, basod on llo ruIos of combal, vas
givon on May 26, 2010, bul onIy in roIalion lo aclions oxoculod oulsido IsraoIs lorriloriaI
valors (vliIo insido llo lorriloriaI valors il vas dolorminod llal Masada forcos couId
onIy assisl in oscorling and guarding llo slips passongors), soo Iollor from Allornoy Raz
Nizri, sonior assislanl lo llo Govornmonls Allornoy GonoraI, lo allornoy Bonny IoIclok,
Irison Sorvico Commissionorslip (May 26, 2010), al appondix 13 of llo MAG pcsiiicn p.pcr
- Appcn!ix, supr. nolo 77.
444 Soo MAG pcsiiicn p.pcr - Appcn!ix, supr. nolo 77, al appondix 14.
121. 1|c mi|ii.r prcp.r.iicns. As proviousIy nolod, llo IDI bogan ils
proparalions back in Iobruary 2010, vlon il rocoivod llo informalion
rogarding llo slops lakon lo organizo llo doparluro of llo fIoliIIa. Tlo
Commission vas providod vill llo oporalion ordors of llo Cliof of Slaff
(command no. 1 and command no. 3), llo navaI command (no. 3), and llo
Iand command (no. 2), vlicl voro proparod by llo IDI boforo llo fIoliIIa
arrivod.
445
Tlo Commission aIso rocoivod llo briofing llal llo Commandor
of llo Navy gavo lo llo commandors and soIdiors on May 20, 2010, and
a summary of llo 'silualion anaIysis loadod by llo Commandor of llo
Navy, vlicl look pIaco on May 26, 2010.
446
Tlo Iasl Cliof of Slaffs oporalion ordor llal vas issuod boforo
llo incidonl (loroaflor: the ChieI nI 5taII's nrder) dofinos llo goaI as
foIIovs: 'Tlo IDI slaII provonl unaullorizod vossoIs roacling llo Gaza
Slrip.
447
Tlo mission is dofinod as foIIovs: 'Tlo Navy slaII onforco llo
navaI bIockado imposod on llo Gaza Slrip and slaII provonl vossoIs from
onloring llo Gaza Slrip, vliIo mainlaining as Iov a modia profiIo as
possibIo.
448
Tlo Cliof of Slaffs ordor roviovs llo dopIoymonl of forcos
and llo division of lasks and is il accompaniod by sovon annoxos doaIing
vill various issuos, incIuding llo division of rosponsibiIily for doaIing
vill llo doporlalion from IsraoI of foroign nalionaIs llal parlicipalod in
llo fIoliIIa, llo soizuro of oquipmonl boIonging lo foroign nalionaIs llal
aro doporlod againsl a background of commilling socurily offoncos, IogaI
omplasos and annoxos llal concorn subjocls sucl as oporaling oIoclronic
scrooning, IDI spokosporsons slalomonls, loIoprocossing and Iogislics.
Tlo annox llal concorns llo soizuro of porsonaI oquipmonl boIonging lo
llo fIoliIIa parlicipanls pIacod an omplasis on carrying oul clocks from
llo viovpoinl of dala socurily and slalos llo compolonl aullorily lo
approvo various aclions vill rogard lo llo soizuro of llo oquipmonl and
ils lroalmonl.
445 Ior llo mosl updalod command, soo GonoraI Slaff OporalionaI Ordor 3 Winds of Hoavon
7 - Silualion Room Ordor, in rosponso lo llo compIolion roquosl of Nov. 7, 2010, llo
foIdor conlaining llo oxlibil vas markod as foIdor 136 by llo Commission |loroinaflor
Gcncr.| Si.|| Opcr.iicn.| Or!cr 3j, NavaI OporalionaI Ordor 3 Winds of Hoavon 7, llo
foIdor conlaining llo oxlibil vas markod as foIdor 90 by llo Commission |loroinaflor
N.t.| Opcr.iicn.| Or!cr 3j, Iand OporalionaI Ordor 2 Winds of Hoavon 7, in rosponso
lo llo compIolion roquosl of Nov. 7, 2010, llo foIdor conlaining llo oxlibil vas markod as
foIdor 136 by llo Commission |loroinaflor I.n! Opcr.iicn.| Or!cr 2j.
446 Summary of silualion anaIysis loadod by Navy commandor 'Winds of Hoavon Silualion
AnaIysis May 26, 2010 - Navy Commandors summary (May 26, 2010), llo foIdor
conlaining llo oxlibil vas markod as foIdor 90 by llo Commission.
447 Gcncr.| Si.|| Opcr.iicn.| Or!cr 3, supr. nolo 445, al para. 5. Soo aIso para. 4 of GonoraI
Slaff OporalionaI Ordor 1 Winds of Hoavon - Silualion Room Ordor, Dc|cnsc Minisicrs
Mcmcr.n!um Appcn!ixcs, supr. nolo 209 |loroinaflor Gcncr.| Si.|| Opcr.iicn.| Or!cr 1j.
448 Gcncr.| Si.|| Opcr.iicn.| Or!cr 3, supr. nolo 445, al para. 6.
Tlo navaI oporalion ordor dofinos llo mission as foIIovs: 'A
combinod forco of Slayolol 13 vill llo assislanco of socond vavo forcos
. viII provonl llo onlry of slipping vossoIs inlo llo Gaza Slrip Winds
of Hoavon 7 vliIo mainlaining Iogilimacy.
449
Tlo navaI ordor is vory
dolaiIod. Wo slaII discuss loro in briof corlain aspocls lloroof llal aro
roIovanl lo our concorns, mainIy from llo viovpoinl of llo uso of forco
and llo lroalmonl of llo parlicipanls of llo fIoliIIa.
Irom llo viovpoinl of dopIoying llo forcos for llo navaI slago of llo
oporalion, il vas docidod llal llo command IovoI vouId bo vory sonior,
incIuding llo Commandor of llo Navy limsoIf.
450
In llo navaI slago, llo
forco vas dividod inlo lvo lypos: (1) llo lakoovor forco, vloso funclion
vas lo lako conlroI of llo slips if lloy vouId nol rospond lo llo radio
communicalions. Tlo lakoovor forco vas mado up of llroo indopondonl
"conlors", undor llo command of a sonior commandor loIding llo rank of
Iioulonanl-coIonoI: "conlor A" vas dosignalod lo lako conlroI of llo M.ti
M.rm.r., "conlor B" vas dosignalod lo lako conlroI of Bc.i 8000 and llo
G.zzc, and "conlor C" vas dosignalod lo lako conlroI of llo C|.||cngcr 1 and
llo Sc|i.. An addilionaI forco vas dosignalod lo lako conlroI of llo Dc|nc Y.
Iacl of lloso "conlors" vas inlondod lo bo compIoloIy indopondonl al llo
oporalion slago, in ollor vords, il vas givon ils ovn indopondonl modicaI
porsonnoI, navigalors and rosorvos.
451
(2) Tlo socond vavo forco, vlicl
vouId bo comprisod of four loams commandod by Iioulonanl-coIonoIs
and vloso lasks voro: (a) lo bring llo fIoliIIa vossoIs lo IsraoIi porls, (b) lo
mako a Iisl of llo porsons on board and lo doaI vill llo magnolic modia
llal vouId bo found on board llo vossoIs.
In llo paragrapl onlilIod 'dolaiIs of llo gonoraI mollod, llo ordor
slalos llal oporalions slouId bo carriod oul lo onforco llo navaI bIockado
according lo an 'ordor of oscaIalion - varning / provonlion / bringing
449 N.t.| Opcr.iicn.| Or!cr 3, supr. nolo 445, al para. 4.
450 As parl of llo prosonlalion of llo oporalions principIos lo llo Cliof of Slaff prior lo llo
oporalion, llo Cliof of Slaff dolorminod llal llo commandor of llo Navy is llo commandor
of llo oporalion. Tlis inslruclion vas givon as parl of llo Cliof of Slaffs Oporalions and
Ixcursions of May 6, 2010, soo |DI ccmp|ciicn rcspcnsc c| 15.11.2010, supr. nolo 400, al
para. G. Tlis inslruclion vas incorporalod inlo llo ordors, soo Gcncr.| Si.|| Opcr.iicn.|
Or!cr 1, supr. nolo 447, al para. 8, N.t.| Opcr.iicn.| Or!cr 3, supr. nolo 445, al para. 13. In
addilion, in Oporalions and Ixcursions summary of May 13, 2010, para. I, sub-para. 4 il is
monlionod llal: Tlo Cliof of Slaff slrossod llo imporlanco of sonior commands prosonco
al llo anlicipalod poinls of friclion vliIo conducling a sonsilivo and moasurod aclion -
rosponsibiIily of llo commandor of llo Navy. |DI ccmp|ciicn rcspcnsc c| 15.11.2010, supr.
nolo 400, al Iara. G.
451 Soo llo loslimony of llo commandor of Slayolol 13, Dooponing and Broadoning llo
GonoraI Slaff 's oxporls inquiry (Sop. 20, 2010), al 3, markod by llo Commission as oxlibil
104 |loroinaflor |nuir |xp.nsicn c| 20.9.2010j.
llo vossoIs lo a laIl / laking conlroI of llom. In llo 'dolaiIs of mollod
paragrapl, undor llo oporalion slago doaIing vill 'idonlificalion,
moniloring and sonding mossagos lo llo vossoIs, in llo spociaI inslruclions
paragrapl, il vas slalod llal boforo llo slago of laking conlroI of llo
vossoIs and aflor rocoiving approvaI from llo Navy Commandor, llo
forco commandor vas pormillod lo ompIoy various moasuros lo slop llo
vossoIs, incIuding firing 'skunk bombs or valor from valor cannons,
forcing llo vossoIs lo clango lloir courso or slop by moans of missiIo
slips, crossing bovs, firing varning slols inlo llo air and 'vlilo Iiglling'
(bIinding using a Iargo projoclor).
452
Tlo IogaI annox lo llo ordor conlainod
IogaI omplasos for llo uso of lloso moasuros and llo mannor of oporaling
llom. In llis rogard, il slouId bo slalod from llo oulsol llal in praclico, no
uso vas mado of lloso moasuros.
453
Tlo foIIoving inslruclions, inicr .|i., aro aIso oulIinod in llo navaI
ordor:
a. Inslruclions rogarding communicalions and varnings llal
vouId bo lransmillod by a Ioudspoakor syslom: according lo llo Navys
oporalion ordor, fivo communicalions voro pIannod vill asconding
IovoIs of varning as llo fIoliIIa vossoIs approaclod llo aroa of llo navaI
bIockado. Tlo Ianguago of llo fivo communicalions, and llo poinls al
vlicl il vas dolorminod lloy vouId bo sonl lo llo fIoliIIa vossoIs, as
slalod in llo Navys oporalion ordor, voro llo foIIoving:
Communicalion no. 1 - firsl communicalion from llo Govornmonl,
inlondod for lransmission al llo limo of inlorcoplion (allaclod lo llo Iisl
of communicalions llo day boforo llo oporalion al llo roquosl of llo
Irimo Minislor):
454
'Tlis is llo IsraoIi Navy. You aro approacling an aroa of losliIilios
vlicl is undor a navaI bIockado. Tlo Gaza aroa, coaslaI rogion
and Gaza Harbor aro cIosod lo aII marilimo lraffic. Tlo IsraoIi
govornmonl supporls doIivory of lumanilarian suppIios lo llo
civiIian popuIalion in llo Gaza slrip and invilos you lo onlor llo
Asldod porl. DoIivory of llo suppIios in accordanco vill llo
aullorilios roguIalions viII bo llrougl llo formaI Iand crossings
452 Gcncr.| Si.|| Opcr.iicn.| Or!cr 3, supr. nolo 445.
453 Soo Transcripl of sossion no. 13 "cIoso door loslimony of llo Cliof of Slaff" (Doc. 24,
2010), al 14-15. Tlo Cliof of Slaff monlionod in lis loslimony llal llo ordor doos nol
obIigalo llo uso of aII llo moans. Tlo ordor monlions aII llo moans llal may bo usod
and llo considoralions rogarding llo ompIoymonl of llo moans aro in accordanco vill
llo silualion, llo missions |.j lloro is no obIigalion lo go llrougl aII llo moans, bul llo
moans suilabIo for llo mallor musl bo usod". In llis conloxl, soo oxpIanalion prosonlod in
para. 227 for llo nogalion of llo possibiIily of using somo of llo moans discussod.
454 Soo |DI ccmp|ciicn rcspcnsc c| 15.11.2010, supr. nolo 400, al para. D.
and undor your obsorvalion, aflor vlicl you can rolurn lo your
lomo porls aboard llo vossoIs on vlicl you arrivod.
455
Communicalion no. 2 - inlondod for lransmission al llo limo of
inlorcoplion:
and Gaza Harbor aro cIosod lo aII marilimo lraffic.
You aro loroby roquoslod lo clango your courso and rofrain
from onloring llo aroa.
DoIivory of lumanilarian suppIios lo llo civiIian popuIalion
in llo Gaza slrip is possibIo llrougl llo formaI Iand crossing
bolvoon IsraoI and llo Gaza slrip, subjocl lo prior coordinalion
vill llo IsraoIi aullorilios.
456
Communicalion no. 3 - inlormodialo communicalion:
and Gaza Harbor aro cIosod lo aII marilimo lraffic.
You aro loroby ordorod lo clango your courso and rofrain from
onloring llo aroa. If you ignoro llis ordor and allompl lo onlor
llo bIockadod aroa, llo IsraoIi Navy viII bo forcod lo lako aII llo
nocossary moasuros in ordor lo onforco llis bIockado.
By ignoring llis ordor, you aro pulling your crov mombors
and your molor vossoI al risk. You aIono aro rosponsibIo for llo
consoquoncos of your aclion.
in llo Gaza slrip is possibIo llrougl llo formaI Iand crossings
bolvoon IsraoI and llo Gaza slrip subjocl lo prior coordinalion
457

Iourll communicalion - inlondod as a Ioudspoakor announcomonl
boforo llo vossoIs onlorod a rango of 20 miIos from llo aroa of llo navaI
bIockado:
vlicl is undor a navaI bIockado. Tlo Gaza aroa is a combal zono,
by onloring llis zono you aro pulling your vossoI al risk.
You aro loroby ordorod lo clango your courso and rofrain from
onloring llo aroa. If you ignoro llis ordor and allompl lo onlor
llo bIockadod aroa, llo IsraoIi Navy viII bo forcod lo lako aII
455 N.t.| Opcr.iicn.| Or!cr 3, supr. nolo 445, al 54, appondix I.
456 |!.
457 |!., al 55.
llo nocossary moasuros incIuding boarding your vossoI in ordor
lo onforco lis bIockado. Bo avaro llal you aro vioIaling a IogaI
navaI bIockado and llal llo organizors and caplains of llis saiI
viII bo loId rosponsibIo.
in llo Gaza slrip is possibIo llrougl llo formaI Iand crossings
bolvoon IsraoI and llo Gaza slrip subjocl lo prior coordinalion
458
OplionaI fifll communicalion - aflor onloring llo aroa of llo
bIockado:
'Tlis is llo IsraoIi Navy. You aro saiIing in a bIockadod aroa
according lo inlornalionaI Iav. You voro ordorod sovoraI limos
lo avoid onloring llis aroa. Duo lo your rofusaI lo oboy llis ordor
and your inlonl lo vioIalo a IogaI navaI bIockado, llo IsraoIi Navy
is obIigod lo lako aII nocossary moasuros in ordor lo onforco llis
bIockado. By ignoring llis ordor, you aro pulling your crov
mombors and your molor vossoI al risk. If you do nol clango
your courso immodialoIy, you aIono viII bo rosponsibIo for llo
consoquoncos of your aclions.
459
b. Tlo voapons llal voro pormillod for uso - llo safoly annox
slalos llal llo combal porsonnoI vouId bo armod onIy in accordanco
vill llo inslruclions of llo MiIilary Advocalo-GonoraIs Offico and llo
inslruclions of llo Cliof ModicaI Officors Offico.
460
Il vas aIso docidod
llal llo commandors vouId onsuro, aflor issuing llo voapons, llal llo
combal porsonnoI vouId onIy lavo in lloir possossion voapons llal voro
pormillod for uso pursuanl lo lloso inslruclions.
461
According lo llo oporalion ordor, llo Ioss-IollaI voapons llal voro
approvod for uso in llo oporalion incIudod llo foIIoving:
(1) A Tasor gun in llo form of a slockor, villoul firing - a dovico
llal vorks Iiko a slockor, by forming an oIoclric circuil on llo
largol from slorl rango. Works on ballorios. Typo of ammunilion:
oIoclric curronl.
(2) Rominglon 870 slolgun - a firoarm llal can bo usod, inicr .|i.,
as a Ioss-IollaI voapon. Il is Ioadod manuaIIy, vill a llroo sloII
inlornaI lubo magazino (in addilion lo ono sloII in llo barroI). Il
is possibIo lo allacl siglls and a dovico for broaking vindovs.
458 |!., al 56.
459 |!., al 57.
460 N.t.| Opcr.iicn.| Or!cr 3, supr. nolo 445, al 33, appondix C, para. 4(c)(1).
461 |!., al 33, appondix C, para. 4(c)(4).
Tlo ammunilion llal vas approvod for using llis voapon vas 12
gaugo boan bag sloIIs.
462
(3) Tippman 98 painlbaII gun - a voapon llal is dosignod lo fiII
painlbaIIs, vill a somi-aulomalic firing capacily. Il oporalos on
llo basis of a pnoumalic moclanism llal is oporalod by an air
prossuro canislor of up lo 2000 ISI. Tlo ammunilion llal vas
approvod for uso in llis voapon: 0.68 incl caIibor painl baIIs.
(4) Slun gronado 4 - a slun gronado is a gronado llal vlon dolonalod
croalos a fIaro up lo a dislanco of 30 cm from ils baso (i.o. a fIasl
bang gronado). DoIay of 1.5 soconds. Il vas omplasizod llal
gronados of llis kind slouId bo usod villoul gas and villoul
smoko.
Tlo ordors safoly annox cIoarIy omplasizod llal llo uso of Ioss-IollaI
voapons or ammunilion ollor llan lloso llal appoar in llo inslruclions
vas prolibilod,
463
and lloy slalod llal aII of llo combal porsonnoI vouId
undorgo lraining and driIIs vill rogard lo inslruclions for llo uso of llo
voapons,
464
llal Iivo ammunilion vouId bo cIoarIy soparalod from Ioss-
IollaI ammunilion and cIoar oporaling procoduros vouId bo dofinod in
ordor lo provonl mislakos occurring bolvoon Iivo ammunilion and Ioss-
IollaI ammunilion.
465
Moroovor, llo inslruclions for llo uso of painlbaII
guns providod llal insofar as lloro vouId bo any nood lo uso llom, lloy
slouId bo firod firsl al llo fool, and llon aimod liglor if nocossary (bul
nol al llo groin).
466
Tloy aIso slalod llal llo painlbaII guns slouId nol bo
usod if as a rosuIl 'a cliId undor llo ago of 14 or vomon vlo appoarod lo
bo prognanl migll bo lil.
467
c. RuIos of Ingagomonl - llo ruIos of ongagomonl can bo
found in llo IogaI annox lo llo Iand and soa oporalion ordor. Tlo 'ruIos
of conducl for llo forcos' (for llo purposos of llis roporl, lloso ruIos
viII bo roforrod lo as 'llo ruIos of ongagomonl') slalo llal, as a mallor
of principIo, in 'llo sconario undor discussion', i.o., 'doaIing vill foroign
cilizons vlo, according lo llo oxisling informalion, aro nol combalanls' -
llo aullorily and moasuro llal invoIvo llo uso of forco slaII nol bo usod
462 Tloro aro lvo lypos of sloIIs usod by llo IDI vlicl diffor in llo amounl of gunpovdor
lloy conlain: a sofl bag and a lard bag, llo Iallor of vlicl vas nol usod in llo oporalion.
Soo |DI ccmp|ciicn rcspcnsc c| 15.11.2010, supr. nolo 400, al para. I.
463 |!., al 33, para. 4(f).
464 N.t.| Opcr.iicn.| Or!cr 3, supr. nolo 445, al 35, appondix D, para. 6(6), 6(8).
465 |!., al appondix D, para. 6(10).
466 |!., al appondix C, para. 4(l).
467 Gcncr.| Si.|| Opcr.iicn.| Or!cr 3, supr. nolo 445, al 19, appondix C, para. 2(g)(b)(9), N.t.|
Opcr.iicn.| Or!cr 3, supr. nolo 445, al 62, appondix G, para. 2(g)(b)(9).
againsl cilizons, boyond llo minimum roquirod lo fuIfiII llo mission, i.o.
slopping llo vossoIs. Tlo gonoraI ruIos for llo uso of forco providod llal,
in gonoraI, forco vouId nol bo usod, and llal il vouId bo usod onIy as
a Iasl rosorl, for llo purposo of 'provonling dangor of injury lo luman
boings or lo doaI vill an allompl lo llvarl bringing llo vossoIs lo an
IsraoIi porl.
468
Il vas cIarifiod llal llo uso of forco musl bo minimaI and
proporlionalo, and voapons slouId bo usod on an incroasing scaIo.
469
Tlo
oporalion ordor pormils uso of Ioss-IollaI voapons onIy vlon llis uso
is roquirod in ordor lo 'noulraIizo a roaI dangor lo llo safoly or Iivos of
luman boings llal comos from a spocific porson, and slalos llal insofar
as il is possibIo lo noulraIizo llo causo of llo dangor villoul using Ioss-
IollaI voapons, llis slouId bo dono.
470
Il aIso slalos llal il is pormissibIo
lo uso Ioss-IollaI voapons if lloro is a roaI anlicipalion llal llo ovonl
couId dolorioralo inlo a silualion in vlicl a roaI and immodialo llroal lo
Iifo is forosooabIo, and llo uso of Ioss-IollaI voapons is IikoIy lo provonl
llis dolorioralion, il furllor slalos llal Ioss-IollaI voapons couId onIy bo
usod by lloso vlo lavo boon lrainod lo do so, and in accordanco vill llo
oporaling inslruclions and safoly dosignalions llal lad boon formuIalod.
Rogarding llo uso of IollaI voapons, llo oporalion ordor aIso slalos
llal, as a ruIo, Iivo ammunilion slouId nol bo usod.
471
Tlo uso of IollaI
voapons vas pormillod in ono silualion onIy, namoIy in soIf-dofonso, for
llo purposo of avorling a roaI and immodialo dangor lo Iifo, vlon il is nol
possibIo lo avorl llo dangor by Ioss larmfuI moans. Il slouId bo nolod
llal llo dofinilion of 'dangor lo Iifo in llo oporalion ordor is: 'a roaI and
immodialo dangor of llo Ioss of luman Iifo or sorious plysicaI injury.
472
Il
slouId aIso bo nolod llal llo ordor slalos llal IollaI voapons slouId bo
usod onIy as a Iasl rosorl, aflor varnings lavo boon givon lo llo porson
againsl vlom a IollaI voapon is going lo bo usod. Il aIso slalos, vill
rospocl lo llo uso of IollaI voapons, llal if lloro is a roaI concorn llal llo
graduaI aclion "vouId ondangor Iifo, llon il is pormissibIo lo slool al llo
ono croaling llo dangor in ordor lo oIiminalo llo dangor immodialoIy,
ovon villoul ongaging in aII of llo slagos sol forll abovo."
473
Tlo ordor
468 Gcncr.| Si.|| Opcr.iicn.| Or!cr 3, supr. nolo 445, al 17, appondix C, para. 2(g)(1)(a), N.t.|
Opcr.iicn.| Or!cr 3, supr. nolo 445, al 60, appondix G, para. 2(g)(1)(a).
469 Gcncr.| Si.|| Opcr.iicn.| Or!cr 3, supr. nolo 445, al 18, appondix C, para. 2(g)(1)(b), N.t.|
Opcr.iicn.| Or!cr 3, supr. nolo 445, al 60, appondix G, para. 2(g)(1)(b).
470 Gcncr.| Si.|| Opcr.iicn.| Or!cr 3, supr. nolo 445, al 18, appondix C, para. 2(g)(2)(b)(3), N.t.|
Opcr.iicn.| Or!cr 3, supr. nolo 445, al 61, appondix G, para. 2(g)(2)(b)(3).
471 Gcncr.| Si.|| Opcr.iicn.| Or!cr 3, supr. nolo 445, al 18, appondix C, para. 2(g)(2)(a)(2), N.t.|
Opcr.iicn.| Or!cr 3, supr. nolo 445, al 61, appondix G, para. 2(g)(2)(a)(2).
472 Gcncr.| Si.|| Opcr.iicn.| Or!cr 3, supr. nolo 445, al 16, appondix C, para. 2(g)(2)(a)(2), N.t.|
Opcr.iicn.| Or!cr 3, supr. nolo 445, al 59, appondix G, para. 4(g)(2)(a)(2).
473 Ior an oxpandod vorsion of llo ruIos of ongagomonl soo para. 206 boIov.
aIso providos llal aflor llo dangor las boon avorlod, an allompl slouId
bo mado lo capluro llo parly ondangoring Iifo in anollor mannor villoul
llo uso of voapons, llal larm lo lloso nol invoIvod slouId bo avoidod,
llal lloro slouId bo no uso of forco al a porson vlo las surrondorod or
las coasod lo conslilulo a llroal, and llal modicaI lroalmonl slouId bo
givon lo llo voundod immodialoIy upon llo cossalion of uso of forco.
Irom llo slalomonls of llo commandors and soIdiors al aII IovoIs
il can bo soon llal lloso ruIos voro mado cIoar lo llo forcos llal look
parl in llo oporalion.
474
Al an oporalionaI briofing on May 20, 2010, llo
Navy Commandor said llal lloro vas no inlonlion lo injuro or punisl
llo porsons on board, and lo vonl on lo say llal llo IsraoI Navys goaI
vas lo carry oul llo mission 'as profossionaIs and in accordanco vill IDI
ollicaI codo.
475
Moroovor, il vas aIso slalod al llal briofing llal 'oponing
firo slouId onIy lako pIaco in a Iifo llroaloning silualion, lo noulraIizo
llo porson prosonling llo dangor, bul nonolloIoss, 'vloro possibIo, llo
bonofil of doubl slouId bo givon.
476

Tlus, llo firsl soIdior vlo fasl-ropod dovn from llo firsl loIicoplor
(loroaflor: the Iirst snIdier or snIdier nn. 1) slalod in llo addilionaI
invosligalions of llo IiIand Commilloo llal voro carriod oul al llo
roquosl of llo Commission: 'In llo briofings, incIuding my porsonaI laIk
vill llo commandor of my loam, il vas omplasizod llal llo uso of Iivo
voapons vas llo Iasl oplion and a rosponso lo an immodialo dangor lo
Iifo.
477
Tlo socond soIdior vlo fasl-ropod dovn from llo firsl loIicoplor
(loroaflor: the secnnd snIdier or snIdier nn. 2) aIso slalod: 'Tlo ruIos of
474 Soo llo loslimony of llo commandor of Slayolol 13, |nuir |xp.nsicn c| 20.9.2010, supr.
nolo 451, al 2, and soo aIso llo loslimony of llo commandor of llo Takoovor Iorco, 1, and
llo loslimony of Quoslionor 2, |!. Il slouId bo monlionod llal from llo maloriaI boforo llo
Commission il arisos llal llo forcos rocoivod oxlonsivo monlaI proparalion vlicl incIudod
galloring informalion and vriling insiglls lovards proparalion, and llo proparalion of
llo commandors lo porform llo proparalion (by llo Navys bolavioraI scionco brancl),
llo convorsalion of llo Slayolol commandor vill aII llo commandors in llo oporalion,
lvo Company Command laIks vill aII llo commandors, 2 Iocluros by a Masada unil
combalanl aboul vays lo doaI vill riols (ono Iocluro lo llo commandors and ono lo llo
soIdiors), a laIk by oacl conlor commandor vill llo forcos in llo conlor, anaIysis and
invosligalion of llo modoI in Iigll of monlaI conducl (in llis conloxl soo |DI ccmp|ciicn
rcspcnsc c| 15.11.2010, supr. nolo 400, al para. I). On llo imporlanco of llis proparalion in
roIalion lo llo Opon Iiro inslruclions, soo aIso llo C|ic| c| Si.||s Opcn Dccr 1csiimcn c|
11.8.2010, supr. nolo 70, al 38.
475 Tlo summary of mooling loadod by Navy Commandor IinaI Briofing for Oporalion
'Winds of Hoavon 7 - Navy commandors Summary (summary of mooling loadod by
Navy Commandor, }uI. 4, 2010), al para. 2(a)(5), llo foIdor conlaining llo oxlibil las boon
markod as foIdor 90 by llo Commission.
476 |!., al para. 2(c)(8)(b), Soo aIso |DI ccmp|ciicn rcspcnsc c| 15.11.2010, supr. nolo 400, al para.
I.
477 Toslimony of soIdior no. 1, |!., al 1.
ongagomonl voro vory slricl, and llo omplasis vas llal clanging ovor lo
Iivo ammunilion vouId bo a vory oxcoplionaI ovonl and onIy if vo facod
a roaI and immodialo dangor lo Iifo and il vouId nol bo possibIo lo avoid
larming lim slouId vo uso Iivo ammunilion in ordor lo noulraIizo llo
llroal.
478
d. Communicalions bIackoul - llo inslruclions llal voro
givon in llo oporalion ordor voro lo aIIov dislross broadcasls, insofar as
lloso did nol ondangor llo miIilary oporalion. Implasis vas aIso pIacod
on llo duly of caro in llis rogard, llo nood lo Iimil llo bIackouls insofar
as possibIo and lo lorminalo llo bIackouls vlon llo miIilary nood ondod.
Il vas aIso dolorminod llal in a caso of dislross, insofar as a broadcasl
vas nol possibIo, assislanco vouId bo providod lo llo fIoliIIa vossoIs by
Navy slips.
479
Tlus il vas aIso dolorminod llal any oIoclronic bIackoul or
disruplion of communicalions llal vas nol ono of llo lypos of bIackouls
approvod in llo oporalion ordor roquirod spocific, soparalo, and dolaiIod
IogaI considoralion, and llal any sucl addilionaI bIackouls vouId bo
carriod oul onIy vill llo approvaI of llo Cliof of Slaff's offico.
o. Irocoduro for lroaling llo injurod - llo modicaI annox lo
llo ordor addrossos, in ils objoclivo cIauso, boll llo lroalmonl of combal
porsonnoI and providing modicaI lroalmonl for civiIians on llo various
fIoliIIa vossoIs.
480
Tlo procoduro ilsoIf givos dolaiIs of llo modicaI porsonnoI
and modicaI oquipmonl for llo oporalion, llo mollods of ovacualing
and lroaling llo injurod and ollor profossionaI dolaiIs. Tlo procoduro
roIalos, inicr .|i., lo llo subjocl of oxamining porsons vlo aro dolainod, a
procoss vloso purposo is lo onsuro llal lloro is no modicaI condilion llal
roquiros lroalmonl in llo omorgoncy room.
481
Tlo procoduro aIso slalos
llal dolainod porsons slouId nol bo oxaminod villoul lloir consonl and
llal if a dolainoo rofusos an oxaminalion, a plysician slouId oxpIain lo
lim llo imporlanco lloroof and lis rofusaI slouId bo documonlod. In llo
IogaI annox lo llo ordor, il is slalod llal llo injurod and sick slouId bo
givon modicaI lroalmonl and bo aIIovod lo bo ovacualod from llo incidonl
silo, and insofar as combal is laking pIaco in llo aroa vloro llo injurod aro
Iocalod, llo ovacualion slouId bo aIIovod as soon as possibIo.
482
f. Troalmonl of civiIians - llo IogaI annox lo llo oporalion
ordor oulIinos ruIos of conducl for llo forcos and il slalos, inicr .|i., llal
479 Gcncr.| Si.|| Opcr.iicn.| Or!cr 3, supr. nolo 445, al 21-22, appondix C, para. 3(a)(4), N.t.|
Opcr.iicn.| Or!cr 3, supr. nolo 445, al 63-64, appondix G, para. 3(a)(4).
480 N.t.| Opcr.iicn.| Or!cr 3, supr. nolo 445, al 29, appondix B, para. 1.
481 |!., al appondix B, para. 6.
482 Gcncr.| Si.|| Opcr.iicn.| Or!cr 3, supr. nolo 445, al 17, appondix G, para. 2(c).
civiIians slouId bo lroalod 'al aII limos in a dignifiod and poIilo mannor,
vliIo prolocling lloir dignily and proporly. Il aIso slalos llal sonsilivily
slouId bo dispIayod lo llo basic noods of llo civiIians: vloro nocossary,
lloy slouId bo givon valor and food, no llroals slouId bo mado lo llom
and lloy slouId nol bo caIIod upon lo assisl in carrying oul miIilary
aclivily. Il omplasizos llo prolibilion of making uso of civiIians as a
'luman slioId or as 'loslagos, and llal civiIian proporly may nol bo
damagod or usod, and llal laking il conslilulos a sorious criminaI offonco.
483

g. DoaIing vill porsons suspoclod of miIilary / lorrorisl
aclivily or assisling sucl aclivily - llo IogaI annox inslrucls llo forcos
llal vlon llo fIoliIIa vossoIs onlor llo lorriloriaI valors of llo Slalo of
IsraoI, llo lroalmonl of suspocls, incIuding llo quoslion of arrosling
llom, slouId bo roforrod lo llo IsraoI IoIico or llo IsraoI Irison Sorvico.
Tlo inslruclions aIso slalo llal porsons suspoclod of sucl aclivily may
bo arroslod, bul for llis purposo roasonabIo forco may bo usod onIy lo
llo oxlonl roquirod lo carry oul llo arrosl. Tlo procoduro goos on lo
omplasizo llal arrosloos slouId nol bo larmod aflor lloy aro arroslod
and lloir dignily and socurily slouId bo safoguardod. Tlo procoduro aIso
slalos llal llo circumslancos of llo arrosl and llo idonlily of llo arroslod
porsons slouId bo documonlod.
484
Tlo inslruclions for llo Iand oporalion dofino llo mission as foIIovs:
"Navy - llo lloalro of Asldod, in cooporalion vill llo ollor forcos, viII
proparo for rocoipl of llo 'Winds of Hoavon' vossoIs (cargo and passongors)
and lloir lransfor for llo rosl of lloir landIing by llo aullorizod onlilios."
Tlo ordor dofinos four slagos in llo landIing of llo fIoliIIa parlicipanls:
llo onlry of llo vossoIs inlo llo porl, dobarking of llo fIoliIIa parlicipanls
inlo a faciIily for absorplion and cIassificalion, llo fIoliIIa parlicipanls
Ioaving llo porl aroa (boarding busos and arriving al a dolonlion faciIily),
llo slago from lloir dolonlion unliI lloy Ioavo llo bordors of llo counlry.
Tlo ordor is dolaiIod and il spocifios llo lasks and llo division of
rosponsibiIily bolvoon llo various onlilios incIuding, inicr .|i., llo Navy,
llo inloIIigonco division, llo pIanning division, llo loIocommunicalions
division, llo Iand command brancl, llo IDI spokosporson, COGAT, llo
cliof miIilary prosoculor command, llo MiIilary IoIico, llo IsraoIi poIico,
llo Minislry of llo Inlorior, llo Ioroign Minislry, llo Irison Sorvico, llo
Minislry of Transporlalion, olc.). Tlo ordor conlains, inicr .|i., annoxos
rogarding socurily, modicaI caro, informalion socurily, as voII as an annox
483 N.t.| Opcr.iicn.| Or!cr 3, supr. nolo 445, al 59, appondix G, para. 2(b), Gcncr.| Si.||
Opcr.iicn.| Or!cr 3, supr. nolo 445, al 16-17, appondix C, para. 2(b).
484 N.t.| Opcr.iicn.| Or!cr 3, supr. nolo 445, al 73, appondix G, para. 2(d), Gcncr.| Si.||
Opcr.iicn.| Or!cr 3, supr. nolo 445, al 17, appondix C, para. 2(d).
concorning llo soizuro of oquipmonl boIonging lo llo fIoliIIa parlicipanls
and a IogaI annox idonlicaI lo llo IogaI annox allaclod lo llo navaI ordor,
vlicl dofinos ruIos of conducl for llo forcos.
The miIitary nperatinn Inr enInrcing the navaI
bInckade nn May 31, 2010 - the impIementatinn stage
122. Tlo miIilary oporalion carriod oul in ordor lo slop llo aforosaid
fIoliIIa viII bo roviovod boIov according lo llo foIIoving slagos: (1) Tlo
communicalions and varning slago, (2) giving llo ordor lo carry oul llo
lakoovor, (3) llo lakoovor slago and bringing llo fIoliIIa vossoIs lo Asldod
porl - firsl vo slaII roviov llo lakoovor of llo M.ti M.rm.r., and llon vo
slaII addross, in briof, llo lakoovor of llo ollor vossoIs, (4) from arrivaI al
Asldod porl unliI llo doporlalion of llo fIoliIIa parlicipanls from IsraoI
on }uno 2, 2010.
!"# 3'H735C +'1 9+5'3'4 6)+4#
123. Tlo inquiry slago for llo fIoliIIa vossoIs bogan on May 30, 2010, al
around 9:00 p.m.
485
Tlo slago of lransmilling communicalions bogan on
May 30, 2010, al 10:40 p.m., vlon llo fIoliIIa vossoIs, vlicl voro moving
cIoso lo ono anollor, voro in llo aroa of llo Ialiludo of Sidon (Iobanon),
al a dislanco of oiglly naulicaI miIos from llo sloro. Tlis slago concIudod
on May 31, 2010, al 12:41 a.m., vlon llo vossoIs voro in llo aroa of llo
Ialiludo of Nakura (Iobanon), al a dislanco of oiglly naulicaI miIos from
llo sloro.
486
Tlo communicalions voro sonl by oporalors dosignalod
for llis purposo (navaI officors Iocalod on llo command slip during llo
oporalion vlo lransmillod communicalions lo llo vossoIs in llo fIoliIIa
in accordanco vill llo oporalion command). Tlo communicalions voro
lransmillod by moans of a SaiIor radio dovico (an inlornalionaI civiIian
radio dovico for communicalion bolvoon vossoIs al soa and bolvoon
vossoIs and coaslaI slalions. Tlo SaiIor dovico las fixod clannoIs nol
subjocl lo aIloralion, incIuding llo inlornalionaI dislross clannoI |clannoI
16j).
Tlo rocordings from llo radio nolvork llal voro submillod lo llo
Commission slov llal four communicalions voro indood lransmillod in
fuII and according lo llo proparod loxl. Tlo oplionaI fifll communicalion
vas nol lransmillod. As slalod, llo varnings omplasizod llo facl llal
485 Tlo C|ic| c| Si.||s Opcn Dccr 1csiimcn c| 11.8.2010, supr. nolo 70, al 24.
486 IDI Ansvor lo CompIolion Roquosl (Nov. 7, 2010), al 5, llo foIdor conlaining llo oxlibil
vas markod as foIdor 136 by llo Commission |loroinaflor |DI Ccmp|ciicn Rcspcnsc c|
.11.2010j.
llo vossoIs voro aboul lo onlor an aroa in vlicl a navaI bIockado lad
boon imposod and a cIarificalion llal lloro vas nolling llal provonlod
llo lumanilarian suppIios on llo vossoIs onloring llo Gaza Slrip via llo
Iand crossings, and llo vossoIs voro invilod lo go lo Asldod porl for llis
purposo. Tlo llird varning incIudod a nolico llal aII IogaI moasuros vouId
bo lakon in ordor lo provonl llo vossoIs onloring llo aroa of llo navaI
bIockado, and llo fourll varning incIudod a nolico llal, if nocossary, IDI
soIdiors vouId board llo vossoIs.
487
Tvo of llo radio oporalors, vloso funclion vas lo lransmil llo
communicalions, slalod in llo suppIomonlary invosligalions.
488
Tlo firsl radio oporalor slalod:
'Wo bogan vill llo slandard inquiry lo ovory vossoI al soa. Aflor
llal vo vonl on lo llo roquosl of llo IsraoIi Govornmonl lo onlor
Asldod porl and lransfor llo suppIios lo Gaza.
Noxl vo vonl on lo llo communicalion llal says llal llo aroa is
cIosod and according lo inlornalionaI Iav il is prolibilod lo onlor
llo aroa, and vo said llal llo vossoI vas in dangor. Tlo caplain
limsoIf and llo fIoliIIa organizors voro varnod llal lloy voro
rosponsibIo for any larm lo llo vossoI and llo porsons and cargo
on board. Al no slago vas lloro a broak in communicalions and
llo mossago vas lransmillod cIoarIy.
.
Tlo lransmission of llo mossagos bogan a Iong vay from llo coasl
of Gaza and lloro vas onougl limo lo rospond. M.ti M.rm.r.
ropoalodIy lransmillod a fixod mossago llal llo Navy did nol
lavo povor lo slop llom and llal lloy voro saiIing lo Gaza. In
my opinion, aII of llo communicalions voro lransmillod cIoarIy
and in cIoar and unambiguous Ianguago.
489
124. AII of llo fIoliIIa vossoIs, aparl from llo Sc|i., rospondod lo llo
radio communicalions.
490
Tlo rocordings from llo radio nolvork slov
llo claraclor of llo rosponsos llal voro rocoivod from llo fIoliIIa vossoIs.
Tlo caplain of llo M.ti M.rm.r. said llal lo rofusod lo slop sinco llo
purposo of llo fIoliIIa vas lumanilarian onIy, and bocauso IsraoI did nol
lavo aullorily lo acl againsl llo slip oulsido ils lorriloriaI valors. Wlon
llo caplain of llo M.ti M.rm.r. vas varnod llal if llo slip did nol slop,
487 Quoslionor 2s loslimony, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 1-2.
488 Ior llo oxacl vording of llo varnings, soo para. 121 of llis roporl. Quoslionor 2 loslifiod
llal llo mossagos voro lransmillod vord for vord as lloy appoar in llo ordor, soo
Quoslionor 2s loslimony, |!., al 2.
489 |!., loslimony of inlorrogalor 1.
490 Soo llo C|ic| c| Si.||s Opcn Dccr 1csiimcn c| 11.8.2010, supr. nolo 70, al 25, Soo aIso |DI
Ccmp|ciicn Rcspcnsc c| .11.2010, supr. nolo 486, al 6.
il vouId bo rosponsibIo for llo consoquoncos, a rosponso vas loard on
llo radio nolvork llal if llo IsraoIi Navy allackod llo slip, il vouId bo
llo IsraoIi Navy llal vouId suffor llo consoquoncos. SubsoquonlIy lvo
ollor rosponsos voro loard on llo radio: 'Slul up, IsraoIi Navy, slul up
491

and "Slul up, go back lo Ausclvilz," foIIovod by: "Wo'ro loIping Arabs
lo go and gol llo US, don'l forgol 9/11, guys." Duo lo llo facl llal llo
radio vas oporalod on clannoI 16, llo inlornalionaI froquoncy, il is nol
possibIo lo dolormino vlicl of llo vossoIs mado lloso slalomonls.
Tlo socond radio oporalor aIso slalod in llis rogard:
'Tlo rosponsos |llal voro rocoivod from llo fIoliIIa vossoIsj
voro llal vo voro prolibilod from doing vlal vo voro doing.
Tloy aIvays finislod by omplasizing llo facl llal lloy voro on
llo vay lo Gaza. As limo passod, llo rosponsos bocamo moro
oxlromo, as our communicalions bocamo moro rosoIulo. Tloy
said aII llo limo llal lloy vouId roacl Gaza bul lloy did nol
say al any slago llal lloro vouId bo rosislanco lo llo lakoovor
aIllougl lloy voro loId vo voro aboul lo lako llom ovor. In ono
of llo rosponsos lloy said in IngIisl: Go back lo Ausclvilz.
492
Tlo firsl radio oporalor said in lis slalomonl: 'Irom llo rosponsos of
llo vossoIs il vas possibIo lo undorsland llal lloro vas a dolorminalion
lo loId a confronlalion and lo lry lo roacl Gaza al any cosl.
493
125. Il slouId bo nolod llal aparl from llo rosponsos llal voro rocoivod
by radio communicalions, lloro vas no nolicoabIo allompl lo clango
courso. Tlo aoriaI Iookoul valcling llo vidoo monilor during llo incidonl
(loroaflor: the aeriaI Innknut) slalod: 'I bogan my slifl al approximaloIy
3:00 a.m. . During llo vloIo voyago and my moniloring of llo slips I
did nol idonlify any clango in llo courso of llo M.ti M.rm.r. or any of
llo ollor vossoIs.
494
491 Soo vidoo fiIo Slul Up.vav, in foIdor 663 on N.t D.i. Disc, supr. nolo 5. Soo aIso llo
rocordings in llo Acli Hanil foIdor villin llo Winds of Hoavon 7 foIdor, |!., in lis
invosligalion by an IDI invosligalivo unil foIIoving llo ovonl, llo caplain of llo M.ti
M.rm.r. loslifiod llal during llo quoslioning lo ansvorod llo IsraoIi Navys quoslions,
clangod courso lo aboul 180 dogroos and saiIod soull aboul 75 miIos from llo IsraoIi
sloro. According lo lis cIaim llis vas llo Iasl limo vloro conlacl vas oslabIislod vill
lim unliI llo limo of llo raid and al llis limo lo did nol rocoivo any addilionaI varning,
soo arlicIo: 03/06/10/825/5092 Mi|ii.r |nic||igcncc Rcpcris (}un. 3, 2010), llo foIdor
conlaining llo oxlibil vas markod by llo Commission as foIdor 89 |loroinaflor Mi|ii.r
|nic||igcncc Rcpcrisj.
492 |!., for llo rocording of llo vords spokon ovor llo radio soo CD Ircm Pc.cc I|cii||. ic 1crrcr
I|cii||. submillod by llo army (minulo 3:00), found in a foIdor markod by llo Commission
as oxlibil 89 of llo Commissions oxlibils.
493 Quoslionor 1s loslimony, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 2, soo aIso llo
fIoliIIa diagrams found in foIdor 89.
494 |!., loslimony of llo aoriaI Iook-oul, as voII as loslimony of quoslionor 1, al 2.
Aflor llo aforosaid four varnings voro sonl, no addilionaI varning
vas givon boforo llo vossoIs voro lakon ovor. Tlo firsl radio oporalor
slalod llal lo mado suro llal llo communicalions voro lransmillod lo aII
of llo vossoIs, and llal llo roason vly no addilionaI varning vas givon
vas oporalionaI noods for a covorl lakoovor of llo vossoIs.
495
>3-3'4 )"# 3'6)57%)3&' )& )+0# &-#5 )"# 6"3(6
126. Al llo ond of llo varnings slago and vlon llo fIoliIIa vossoIs
voro al a dislanco of approximaloIy 70 miIos vosl of llo coasl of AlIil,
llo ordor vas givon lo lako ovor llo fIoliIIa vossoIs.
496
Tlo ordor givon
by llo Navy Commandor vas sonl lo llo navaI command posl al Navy
Hoadquarlors, vloro llo load of llo Oporalions Division, Maj. Gon. TaI
Russo, vas aIso slalionod, and aIso lo llo supromo command posl. Irom
lloro, llo ordor vas lransmillod lo llo marilimo forcos conlroI conlor,
vlicl informod llo lakoovor forcos command, vlicl, in lurn, lransmillod
il lo llo commandors of llo lakoovor forco.
497
Boforo llo lakoovor oporalion bogan, and pursuanl lo llo oporalion
inslruclions and llo ordor of Navy Command, al 4:06 a.m. communicalion
bIackouls voro ompIoyod vis--vis llo M.ti M.rm.r.. According lo llo
IDI, llo scrooning aclivily did nol affocl llo abiIily of llo vossoIs lo movo
safoIy. Dospilo llo uso of llo scrooning, sovoraI slorl vidoo cIips and
sovoraI mossagos voro sonl from llo M.ti M.rm.r. during llo lakoovor
oporalion.
498
Tlo lakoovor oporalion ilsoIf bogan al 4:26 a.m. vill llo lakoovor of
llo M.ti M.rm.r..
499
Wo slaII nov addross llis in dolaiI. Tloroaflor, vo
495 |!., loslimony of quoslionor 1, al 2.
496 Soo llo Cliof of Slaffs Irosonlalion, vlicl vas slovn as parl of llo C|ic| c| Si.||s Opcn
Dccr 1csiimcn c| 11.8.2010, supr. nolo 70, al 25. Soo aIso llo Cliof of Slaffs prosonlalion
on llo Commissions vobsilo.
497 Tlis ordor of aclions is doscribod in |DI Ccmp|ciicn Rcspcnsc c| .11.2010, supr. nolo 486, al
6. Il slouId bo monlionod llal according lo llo IiIand Commissions Roporl (llougl llis
is nol monlionod in llo IDI compIolion rosponso submillod lo llo Commission) il arisos
llal in accordanco vill llo Cliof of Slaffs inslruclions lo approvo llo lakoovor oporalion
in roaI limo, al 04:00 AM (laIf an lour prior lo llo slarl of llo lakoovor oporalion) llo Cliof
of Slaff loId a loIoplono silualion anaIysis vill llo load of llo Oporalions Dirocloralo
and approvod llo lakoovor in Iigll of llo slalus roporl submillod lo lim. According lo
vlal las boon slalod in llo IiIand Commission Roporl llo Dofonso Minislor aIso caIIod
llo command posl aboul 15 minulos prior lo llo lakoovor, and vas givon a slalus updalo
and llo Cliof of Slaffs approvaI for llo lakoovor by llo load of llo Oporalions Dirocloralo
(soo 1|c |i|.n! Rcpcri, supr. nolo 402, al 54).
498 Soo |DI Ccmp|ciicn Rcspcnsc c| .11.2010, supr. nolo 486, al 6.
499 Tlo Cliof of Slaff loslifiod llal llo aclion slarlod al 04:28, Soo llo C|ic| c| Si.||s Opcn
Dccr 1csiimcn c| 11.8.2010, supr. nolo 70, al 25, lovovor from ollor maloriaIs boforo llo
Commission il sooms llal llo oporalion slarlod al 04:26, soo |i|.n! Rcpcri, supr. nolo 402,
slaII briofIy discuss llo lakoovor oporalions of llo ollor fIoliIIa vossoIs, in
vlicl lloro voro no Ioss of Iivos.
!"# )+0#&-#5 &* )"# I+-3 I+58+5+
127. As vo lavo said, llo M.ti M.rm.r. vas llo Iargosl passongor
slip among llo fIoliIIa vossoIs. Al llo oulsol vo slouId slalo, vlicl viII
bo furllor oIaboralod boIov (soo paras. 164-167, 190-201 boIov), llal
in rolrospocl il lranspirod llal, !c |.cic, llo porsons on board llo M.ti
M.rm.r. foII inlo lvo main groups: llo |irsi grcup of poaco aclivisls, vlicl
vas llo Iargosl group, vloso mombors boardod llo M.ti M.rm.r. al llo
porl of AnlaIya, llo scccn! grcup, vlicl incIudod boll approximaloIy 40
aclivisls in llo Turkisl organizalion caIIod IHH, vlo boardod llo M.ti
M.rm.r. al llo porl of IslanbuI and vlo markod llomsoIvos as a soparalo
group by moans of iloms of oquipmonl and carriod oul proparalions
boforo llo lakoovor oporalion bogan, as voII as fIoliIIa parlicipanls vlo
voro oillor individuaI aclivisls or boIongod lo ollor organizalions and
vlo docidod lo lako parl in llo vioIonl incidonls for various roasons. Tlis
socond group, vlicl for oaso of roforonco viII bo roforrod lo boIov as
'IHH activists, vas llo ono vlicl parlook in llo vioIonco on board lo
M.ti M.rm.r..
Tlo slalomonls and llo maloriaIs, incIuding llo magnolic modia,
indicalo llal llo lakoovor of llo M.ti M.rm.r. bogan vill an allompl lo
board from IsraoIi Navy Morona spoodboals. Tlis allompl faiIod bocauso
of vioIonl rosislanco on bolaIf of somo of llo fIoliIIa parlicipanls, vlicl
incIudod llroving objocls al llo soIdiors, slooling valor al llom vill
losos, culling llo Iaddors on vlicl lloy voro cIimbing vill an oIoclric
sav, using Iiglls lo bIind llom, olc. Al llis slago, il vas docidod lo lako ovor
llo slip by moans of fifloon soIdiors vlo vouId fasl-ropo dovn onlo llo
roof from a loIicoplor. Tlo soIdiors oncounlorod oxlromo vioIonco - llroo
of llom voro lakon lo llo loId of llo slip aflor lloy lad boon voundod,
lvo voro slol, and ollors sufforod sorious plysicaI injurios. In rosponso,
llo soIdiors rosorlod lo slooling vill Ioss-IollaI and IollaI voapons. Ton
minulos Ialor, an addilionaI forco fasl-ropod dovn onlo llo roof of llo
M.ti M.rm.r. from a socond loIicoplor, vlicl aIso oncounlorod oxlromo
vioIonco, and assislod in llo allompls lo socuro llo uppor docks. Ton
minulos Ialor, a llird forco fasl-ropod dovn from anollor loIicoplor, and
assislod in socuring llo posilion and movo lo llo command bridgo. Al
llo samo limo as llo llird forco of combal porsonnoI fasl-ropod dovn on
al 96, llo Commandor of Conlor As loslimony, |nuir |xp.nsicn c| 20.9.2010, supr. nolo
451, al 1.
lo llo M.ti M.rm.r., ollor forcos cIimbod up from Morona spoodboals,
aflor llo commandor of llo forco on llo Morona spoodboals roaIizod llal
apparonlIy a soIdior from llo forco on roof vas missing (in facl, llroo
soIdiors voro missing). Tlo slago of laking ovor llo M.ti M.rm.r. ondod
aflor llo combal porsonnoI from llo llird loIicoplor look conlroI of llo
command bridgo and llo Caplain of llo M.ti M.rm.r. announcod on llo
M.ti M.rm.r.s Ioudspoakor syslom llal llo slip vas undor IDI conlroI.
BoIov vo slaII roviov llo slagos of llo oporalion and llo lakoovor
of llo M.ti M.rm.r. in parlicuIar, as il arisos from llo slalomonls of llo
combal porsonnoI vlo look parl in llo lakoovor. Il slouId bo nolod, llo
purposo of llis soclion of llo roporl is lo provido a broad doscriplion of
llo lakoovor of llo M.ti M.rm.r. and llo vioIonco llal llo IDI facod.
Tlo firsl allompl lo board llo M.ti M.rm.r. from llo Morona
spoodboals
128. According lo llo lakoovor pIan, in llo firsl slago of llo oporalion
an allompl vas mado by llo Slayolol 13 sorvicomon lo board llo M.ti
M.rm.r. from llo soa, by moans of lvo Morona spoodboals (loroaflor:
the Iirst Mnrena speedbnat and the secnnd Mnrena speedbnat). Tlo firsl
Morona spoodboal vas commandod by llo commandor of "conlor A", llo
mosl sonior commandor in llo onliro forco llal vas dosignalod lo lako
conlroI of llo M.ti M.rm.r. (loroaflor: the Cnmmander nI Center A).
Tlo firsl Morona spoodboal roaclod llo M.ti M.rm.r., camo
aIongsido il and an allompl vas mado lo raiso llo poIos vill cIimbing
pogs on llom in ordor lo onabIo llo combal porsonnoI lo cIimb onlo llo
dock. Tlo Morona oncounlorod rosislanco llal incIudod llo slooling
of valor from losos lovards il, bIinding Iiglls boing diroclod al il and
llo llroving of various objocls, sucl as piocos of molaI, bollIos and llo
slooling of gIass marbIos from sIingslols. Tlo Commandor of Conlor A
docidod lo aIIov llo firing of painlbaII guns and llo uso of fIasl bang
gronados, bul aflor approximaloIy a minulo during vlicl llo rosislanco
did nol diminisl, lo docidod lo rolroal vill llo Morona and aIIov llo
loIicoplor forco lo opon up a pall for boarding from llo soa.
500
129. The second Morena speedboat encountered resistance Irom IHH activists
who threw various objects on the combat personnel, including iron bars, screws,
500 Tlo Commandor of Conlor As loslimony, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al
1, Toam Commandor Rs loslimony, |!., al 1., Soo aIso llo loslimony of soIdior no. 19, vlo
vas aIso on llo command vossoI: al llis poinl lloro vas Iiglling from 2 Iargo fIoodIiglls
(Xonons) from llo diroclion of llo slip lovards llo NSW boals, and llo vloIo ovonl vas
accompaniod by a Iol of noiso and claos. Iikoviso, I sav llo aclivisls on llo boal using
valor losos lo spray llo NSW boals, |!.
etc. The commander oI the second Morena speedboat (hereaIter: Cnmmander nI
the Takenver Fnrce) gave an instruction to Iire less-lethal weapons (beanbags,
paintball rounds and Ilash bang grenades) at these participants, and as a result
some oI the IHH activists leIt the side. At this stage, the combat personnel threw
a ladder in order to make it possible to climb up. When they began to climb up,
the Commander oI the Takeover Force discovered that the metal part that held the
ladder to the side oI the ship had been cut. In view oI the Iact that IHH activists
returned to the place where they were climbing up and began to throw objects at
the Iorce Irom there, the Commander oI the Takeover Force decided to withdraw
with the Morena speedboats.
Tlo Commandor of llo Takoovor Iorco slalod:
'Wo oblainod oyo conlacl vill llo M.ti M.rm.r.. I sav a vory
Iargo numbor of aclivisls vlo voro vailing for us on llo sidos
around llo vloIo boar and on aII llo IovoIs, incIuding al llo
slorn, on aII llo docks al llo bov and on llo sidos.
As I said, llo poopIo on llo sidos, mosl of llom voro maskod,
somo vill gas masks, aII of llom vill orango proloclivo vosls.
Tlo mon loId iron bars, sIingslols, clains.
As vo approaclod, I gavo an ordor nol lo carry oul any slooling
al llis slago, incIuding vill Ioss-IollaI voapons. Wlon vo
camo cIoso lo llo slorn, vo bogan lo rocoivo a barrago of objocls,
anylling llal camo lo land, incIuding molaI bars, molaI clairs,
Iargo cans of linnod food, Iargo scrovs, vlicl lil llo combal
porsonnoI and llo boal. Ono of llo combal porsonnoI vas lil by
a bIunl objocl in llo faco and vas cul undor llo oyo. Anollor of
llo combal porsonnoI vas lil by a molaI objocl on llo load, and
I gavo an ordor lo firo Ioss-IollaI voapons al llo porsons using
vioIonco againsl us.
Tlo porsons on llo Iovor dock of llo slorn ran back, vliIo on llo
liglor docks lloy conlinuod lo llrov llings on us.
As a rosuIl of llo firing of llo Ioss-IollaI voapons, llo sido vas
vacalod and my combal porsonnoI raisod llo Iaddors and allaclod
llom lo llo sido. I slouId poinl oul llal during llo vloIo slago
of raising llo Iaddors, vo conlinuod lo rocoivo a saIvo of objocls
from llo liglor docks, vlicl lil llo combal porsonnoI. Tlo
combal porsonnoI roquoslod pormission lo firo Iivo ammunilion,
bul I did nol givo llom approvaI. Il slouId bo said llal as a rosuIl
of firing llo Ioss-IollaI voapons, as I said, llo porsons on llo dock
lad movod back and from my poinl of viov as a commandor, llo
Ioss-IollaI voapons lad acliovod lloir purposo and lloro vas
no nood lo firo Iivo ammunilion. I bogan lo cIimb firsl up llo
Iaddor and al llal slago llo lop parl of llo Iaddor coIIapsod, lil
mo in llo faco (llo Iaddor is mado up of a fIoxibIo ropo Iaddor
vill fIoxibIo molaI rungs, al llo ond of vlicl is a molaI rung llal
allaclos lo llo sido of llo slip). I Iookod al llo rung and sav llal
il vas cul vill an oIoclric sav. Al llo samo limo, vo proparod
anollor Iaddor for cIimbing up vliIo vo sliII aIongsido llo slip,
vlon al llo samo limo llo porsons on board, llo aclivisls, vlo
rolroalod as a rosuIl of llo firing of Ioss-IollaI voapons, camo
back lo llo cIimbing poinl. Al llis slago lloy voro on lop of us.
Tlo dislanco llal lloy voro abovo us vas approximaloIy lvo
molors and lloy !c |.cic lad a commanding posilion abovo mo.
In ollor vords, lloy lad llo advanlago of loigll ovor mo. Tlo
aclivisls rolurnod lo llrov objocls al us. Al llal slago, I loard
llom slouling AIIalu Akbar. I undorslood llal vloovor vas
making sucl slouls in sucl a mad and oxlromo vay vas
oxuboranl, oxlromo and dangorous. Wo conlinuod lo rocoivo a
barrago of objocls and bocauso vo voro vory cIoso lo llo aclivisls,
I and llo combal porsonnoI voro in dangor. I losilalod as lo
vlollor lo opon firo and docidod lo villdrav vill llo boal. I
mado a roporl on llo radio llal lloro vas major vioIonco on llo
slip. I rocoivod an updalo llal llo samo lling aIso lapponod on
llo ollor sido lo llo socond loam llal lriod lo cIimb up from llo
soa.
501
Al llis slago, llo commandor of llo socond Morona spoodboal
mado anollor allompl lo board llo slip from llo soa, from llo middIo of
llo slip. Tlis allompl aIso oncounlorod major opposilion from llo IHH
aclivisls and llo Commandor of llo Takoovor Iorco docidod lo villdrav
vill llo Morona spoodboal and lo vail unliI llo loIicoplor soIdiors opon
llo sido up for cIimbing:
502
130. Tlo aoriaI Iookoul slalod aboul lloso ovonls:
'During llo proparalions, I sav llo aclivisls on llo slip
proparing aII kinds of objocls. I sav porsons vill camoras and
Iargo numbors of porsons galloring aII aIong llo docks.
Wlon llo Morona spoodboals approaclod llo slip, I sav a
massivo llroving of objocls by llo aclivisls al our boals. I aIso
sav sovoraI oxpIosions llal migll lavo boon slooling al llo
Moronas.
Tlo Moronas movod avay bocauso lloy did nol succood in
cIimbing up.
503
Il slouId aIso bo nolod in llo rocording of llo aoriaI Iookoul's radio
nolvork, al 4:29 a.m. il is possibIo lo loar roporls from llo Moronas of
501 Tlo Commandor of llo Takoovor Iorcos loslimony, |!., al 2-3.
502 Commandor of Conlor As loslimony, |!., al 2-3.
503 Toslimony of llo aoriaI Iook-oul, |!.
a loavy barrago of slonos and bollIos, and as a rosuIl, llal llo combal
porsonnoI voro provonlod from boarding llo M.ti M.rm.r..
504
Tlo vidoo rocordings llal voro submillod lo llo Commission by
llo IDI documonl somo of llo rosislanco of llo IHH aclivisls al llo slorn
of llo M.ti M.rm.r.,
505
llus, for oxampIo, llo socurily camora llal vas
pIacod on llo Iovor IovoI of llo M.ti M.rm.r. slov al 4:26 oigll mon
voaring orango Iifo jackols, somo of llom voaring gas masks and ono
of llom loIding a voodon cIub, Iooking in llo diroclion from vlicl llo
firsl Morona arrivod.
506
In a vidoo fiIm rocordod by ono of llo fIoliIIa
parlicipanls on a digilaI camora llal vas in lis possossion (llo camora's
cIock indicalos llal llo rocording bogan al 4:27 a.m.),
507
llo firsl Morona
can bo soon coming aIongsido llo slorn of llo M.ti M.rm.r. vliIo sovoraI
IHH aclivisls aIong llo slorn aro slooling valor al llo Morona from losos
and aro dirocling a soarclIigll al il. Il slouId aIso bo poinlod oul llal
during llo fiIm, vlicl Iasls 2:05 minulos, crios of 'AIIalu akbar from llo
IHH aclivisls al llo slorn can bo loard.
508
In lvo addilionaI vidoo cIips,
IHH aclivisls can bo soon carrying Iong poIos, somo of llom voaring
masks on lloir facos, ono of llom dirocling a soarclIigll al llo Moronas
and ono of llom is soon llroving somolling al llo Moronas.
509
Il slouId aIso bo poinlod oul llal various vidoo fiIms slov llal
aflor llo allompls lo cIimb up from llo Moronas lo llo slorn of llo M.ti
M.rm.r. voro sloppod and llo Moronas movod avay, a group of IHH
aclivisls romainod al llo silo, armod vill Iong poIos, somo voaring gas
masks and ono loIding a sIingslol.
510
504 Soo fiIo "Noslok Ham.mov" in foIdor Air, N.t D.i. Disc, supr. nolo 5, llis is a laping
from a visuaI dovico aIong vill caIIs ovor llo radio as rocoivod in llo Zofil. Tlo vidoo
pormanonlIy dispIays a cIock indicaling llo prociso limo of laping.
505 Soo N.t D.i. Disc, supr. nolo 5.
506 Soo vidoo fiIos from llo socurily camora in foIdor Sccurii C.m in foIdor Ar.o in foIdor Rulol
HaSlamaim7, on dala lard disc rocoivod from llo army, markod by llo Commission as
oxlibil 133 |loroinaflor Ar.o D.i. Discj.
507 NB: According lo llo proporlios of llo digilaI camora fiIo Ialor soizod by llo IDI forcos.
508 Soo: vidoo fiIo "00983.MTS" in foIdor S1R|AM in foIdor BMDV, in foIdor AVCHD in foIdor
Scn in foIdor Vi!cc, Ar.o D.i. Disc, supr. nolo 506.
509 Soo vidoo fiIo "SaliICam_GoingOnBoard14" in foIdor Sc., N.t D.i. Disc, supr. nolo 5
(carrying molaI bars and aiming fIoodIiglls al NSW boals), Soo aIso vidoo fiIo "SaliICam_
GoingOnBoard13" |!. (carrying molaI bars, llroving objocls al NSW boals).
510 Tlis mallor is vorifiod by lvo sourcos: llo socurily camora posilionod on llo bollom dock
slovs llal llis group of aclivisls romainod in pIaco bolvoon 04:30 and 05:04 (soo: socurily
camora vidoo fiIos in foIdor Sccurii C.m, Ar.o D.i. Disc, supr. nolo 506). Tlo socurily
camora fiIos ono of llo aclivisls is ovon soon lurIing a marbIo vill a sIingslol al 04:44
(according lo llo socurily camoras cIock) lovards llo valor noar llo slorn, and ono of
llo aclivisls vas aIso soon llroving somo objocl lovards llo valor noar llo slorn al 05:04
(according lo llo socurily camoras cIock). Tlis vas aIso documonlod in llo vidoolapod
by ono of llo parlicipanls of llo fIoliIIa vill a digilaI camora lo vas carrying. According
Iasl-roping dovn from llo loIicoplors
131. 1|c |irsi |c|iccpicr. Al 4:29 a.m. llo soIdiors bogan lo fasl-ropo
dovn from llo firsl loIicoplor. In viov of llo vioIonco llal llo navy
forco oncounlorod
511
and llo facl llal on llo roof of llo slip lloro voro
approximaloIy 10-15 IHH aclisls, llo Slayolol 13 commandor ordorod llo
forco commandor in llo firsl loIicoplor from vlicl llo soIdiors fasl-ropod
dovn (loroaflor: the third snIdier and the Iirst heIicnpter, rospoclivoIy)
lo proparo lvo fIasl bang gronados and lo llrov llom boforo lloy fasl-
ropod dovn from llo loIicoplor.
512
Tlo firsl loIicoplor arrivod abovo llo
M.ti M.rm.r. vill fifloon Slayolol 13 combal porsonnoI. Somo of llo
soIdiors on llo loIicoplor idonlifiod dozons of poopIo on llo roof of llo
M.ti M.rm.r., somo of vlom voro voaring vlal appoarod lo bo orango
Iifo jackols and vill gas masks on lloir facos.
513
Tlo ropo vas Iovorod
lo llo camoras cIock llo ovonls voro vidoolapod al 04:47, llal is, al llo loigll of llo
lakoovor aclion oxoculod llrougl dosconl by fasl ropo from llo loIicoplors, as viII bo
dolaiIod Ialor on.
511 Irom llo loslimonios by llo soIdiors il arisos llal lloy did nol loar any roporl ovor llo
radio rogarding vlal vas lapponing on llo NSW boals al llo limo, soo for oxampIo
soIdior no. 1s loslimony, al 1, (vo roaclod llo slip vill llo loIicoplor, prior lo my
dosconl I didnl loar any roporl ovor llo radio aboul vlal vas lapponing on llo slip),
al llo samo limo il sooms llal llo commandors rocoivod a roporl rogarding llo ovonls, soo
llo Slayolol 13 Commandors loslimony, al 3 (I am avaro of llo groal numbor of poopIo
on llo sidos of llo slip and llo rosislanco), as voII as soIdior no. 3s loslimony, al 1 (I
loar ovor llo radio llal llo navaI forco is mooling vill vioIonco and larsl aggrossion and
llal llo docision is llal llo navaI forco viII nol cIimb up. I romombor loaring ovor llo
radio llal lloir Iaddors voro savn and objocls, clains, clairs and forks voro llrovn al
llom), |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451.
512 Soo soIidor no. 3s loslimony, al 1 (llo Slayolol Commandor ordors mo lo proparo lvo
slun gronados), soo aIso llo loslimony of Slayolol 13 commandor, al 4 (al llis slago Im
spoaking vill llo commandor of llo firsl loIicoplor |soIdior no. 3j and slross llal boforo
dosconding lo slouId llrov dovn a numbor of slun gronados in ordor lo drivo poopIo
avay and aIIov llo soIdiors lo doscond and organizo as a unifiod forco), |!. SoIdior no. 5,
vlo sorvod as a loam commandor on llo firsl loIicoplor loslifiod: I idonlify poopIo dovn
lloro and in llo proIiminary pIanning bolvoon llo commandor of llo forco and mysoIf il
vas docidod llal in sucl a caso of poopIo conconlralod al llo pIaco vo voro pIanning lo
doscond lo - vo viII llrov slun gronados from llo loIicoplor (pyroloclnic voapons) in
ordor lo drivo llo poopIo avay and aIIov llo safo dosconl of llo forco. Soo soIdior no. 5s
loslimony, 1, |!.
513 Soo loslimony of soIdior no. 1, al 1 (from llo loIicoplor I idonlifiod aboul 15 poopIo, somo
vill smoko/gas masks on lloir facos/loads and mosl vill Iifo vosls (in rolrospocl vo
found oul llal lloso voro proloclivo vosls for aII inlonls and purposos), loslimony of
soIdior no. 3, al 2, (I idonlify dozons of poopIo lloro. 30-40 |llus in sourcoj poopIo on llo
roof, vill Iifo vosls, gas masks, loIding clairs), |!., By comparison soIdior no. 4 loslifiod
in rosponso lo llo quoslion vlal did you nolico from abovo boforo dosconding` llal
lloro vas Iigll bul I did nol nolico anylling and llo Iigll vas from llo loIicoplor,
loslimony of soIdior no. 4, al 1, and soIdior no. 12 loslifiod: a IillIo boforo arriving vo
opon llo door, llo loam commandor and I aro silling vill our Iogs oulsido llo door and
llo soIdior bolind mo is loIding mo according lo procoduro. Wo roacl llo aroa abovo
and lvo slun gronados voro llrovn.
514
ImmodialoIy aflor llal, boforo llo
soIdiors bogan lo fasl-ropo dovn, llo ropo ilsoIf vas liod lo llo radar
anlonna on llo roof of llo slip by IHH aclivisls.
515
In viov of llis, anollor
ropo vas llrovn dovn from llo ollor sido of llo loIicoplor, anollor fIasl
bang gronado vas llrovn and llo soIdiors bogan lo fasl-ropo dovn llo
socond ropo, nol in llo ordor of dosconl llal vas pIannod in advanco.
516
llo slip, I soo a Iol of poopIo on llo roof (15-20 poopIo) in a group. I soo lloy aro voaring
orango boIls, loslimony of soIdior no. 12, al 1, |!.
514 Il is uncIoar vlollor ono gronado vas lossod or lvo. A numbor of soIdiors boIiovod llal
lvo slun gronados voro llrovn, vliIo ollors boIiovod llal ono vas llrovn. Soo |DI
ccmp|ciicn rcspcnsc c| 15.11.2010, supr. nolo 400, al para. K.
515 Soo loslimony of soIdior no. 3, al 2 (aflor llo ropo vas lossod oul llo rigll sido lvo slun
gronados (fIasl bang), as slalod voro llrovn, in a slorl poriod of limo llo ropo vas lakon
and liod lo llo anlonna on llo roof, vlicl ondangors llo loIicoplor and llo llo |llus in
originaIj poopIo dosconding. Im in a spol vloro I am Iooking al llo roof of llo slip from
llo oponing in llo loIicoplor, llo loIicoplor is lovoring al a loigll of 25 molors ovor llo
slip. Aflor llo ropo is liod lo llo anlonna I undorsland llal il is impossibIo lo doscond
and givo llo ordor lo llrov llo socond ropo from llo ollor sido. Aflor llo ropo is llrovn
llo soIdiors bogin gIiding dovn on il), Soo aIso llo commandor of llo lakoovor forcos
loslimony, al 3 (al llis slago I soo llal llo loIicoplors ropo vas liod and I loId mysoIf
llo loIicoplor is going lo crasl if llo ropo slays liod). Tlis vas aIso loslifiod by soIdior
no. 4 (vlo in roaIily vas llo llird soIdior lo gIido dovn from llo firsl loIicoplor and vas
soIdior 3s radio oporalor): SoIdior no. 5 sal al llo loIicoplors oponing, nolicod a numbor
of poopIo on llo roof and llrov a numbor of slun gronados in ordor lo mako llom scallor,
llon llrov llo fasl ropo dovn and I nolicod lloy voro grabbing llo ropo and lying il,
loslimony of soIdior no. 4, al 1, Soo aIso loslimony of soIdior no. 5, al 1 (al llis slago llo
airborno moclanic llrovs llo ropo voro proparing lo gIido dovn lo llo roof, immodialoIy
aflor I llrov a slun gronado al llo poopIo coming lo grab llo ropo. On llo roof lloro is a
group of aboul 5 poopIo lrying lo grab llo ropo. Tlo poopIo on llo roof grab llo ropo from
llo loIicoplor and puII il lovards llo radar anlonna on llo roof. ImmodialoIy aflorvards
I llrov a slun gronado al llo group of aclivisls fiddIing vill llo ropo. Tlo firsl gronado
llrovn causos slock for a socond or lvo and llo socond gronado doos nol infIuonco lloir
bolavior (il slouId bo monlionod llal gronados of llis lypo onIy croalo noiso and a fIasl
of Iigll). Aflorvards I loII llo soIdior silling noxl lo mo lo llrov llo slun gronado lo las).
Soo aIso loslimony of soIdior no. 12, al 1 (llo airborno moclanic llrov dovn llo fasl ropo,
aflor lo llrov il dovn llo poopIo dovn lloro liod il lo llo radar anlonna, vo sav llom
fiddIing vill llo ropo and llo loam commandor llrov a fIasl bang gronado, llo poopIo
dovn lloro voro a IillIo aIarmod bul sinco llo gronados onIy mako noiso lloy undorslood
llal and vonl aboul lloir businoss), |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451.
516 Soo loslimony of soIdior no. 1, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 1 (SoIdior
no. 5 ordorod mo lo llrov llo slun gronado, I llrov il al llo roof, llo gronado dolonalod
|.j llo piIol gavo an ordor lo Iovor llo firsl ropo on llo sido opposilo lo mo on llo
loIicoplor, llo ropo vas Iovorod, I did nol soo llis bul in rolrospocl llo ropo vas soizod by
llo aclivisls and liod lo llo body of llo slip. Tlo noxl slago vas llal lloy llrov llo socond
ropo on my sido, somoono pallod mo on llo back and signaIod mo lo doscond. I bogan
gIiding dovn lo llo slip|...j), Toslimony of soIdior no. 5, al 1-2 (by llis slago llo ropo
is liod lo llo radar anlonna and is al a diagonaI angIo llal doos nol aIIov gIiding dovn
il. Al llis slago vo gol an ordor on llo radio lo rappoI. I updalo llo forco commandor
|soIdior no. 3j llal no oplion oxisls lo doscond on my sido sinco llo ropo is al an angIo
llal doos nol pormil gIiding dovn and llo forco commandor docidos lo doscond from
llo socond sido and updalos mo. Al llis slago vo bogin dosconding, duo lo llo lransilion
Il slouId bo nolod llal llo ovonls monlionod abovo aflor llo arrivaI
of llo firsl loIicoplor voro rocordod by vidoo camora diroclod al llo M.ti
M.rm.r. from llo IDIs aoriaI obsorvalion posl.
517
132. Tlo soIdiors' slalomonls and llo vidoo fiIos lransforrod lo llo
Commission llal voro fiImod by various parlios (incIuding parlicipanls on
llo fIoliIIa, vidoo rocording dovicos, olc.) indicalo llal llo fifloon soIdiors
vlo fasl-ropod ono aflor llo ollor from llo firsl loIicoplor oncounlorod
sovoro vioIonco upon Ianding on llo roof of llo M.ti M.rm.r.. Tlis
vioIonco incIudod llo uso of plysicaI forco and allacks on llo soIdiors
using various moans, sucl as voodon cIubs, iron rods, sIingslols, knivos,
olc., as voII as llo uso of firoarms. Tlroo soIdiors voro lakon boIov
dock. Tlo soIdiors' slalomonls indicalo llal lloy voro asloundod by llo
fiorconoss of llo rosislanco. Tloy lad oxpoclod, al mosl, vorbaI rosislanco,
pusling or puncling, bul nol llo scono of confIicl llal lloy oncounlorod
on llo roof of llo M.ti M.rm.r..
518

lo llo socond sido of llo cloppor (llo ropo on llo pIannod sido vas liod), llo ordor of
dosconl is disruplod and vo doscond conlrary lo llo originaI pIanning.), Toslimony of
soIdior no. 4, al 1 (Upon llroving |llus in originaIj vo voro loId lo opon llo socond door
and proparo lo doscond from llo socond door. Tlis croalod a silualion vloro llo ordor of
dosconl vas sIigllIy aIlorod from pIanning and soIdiors 1 and 2 voro llo firsl lo doscond
and soIdior no. 3 and I doscondod aflor llom.), As voII as loslimony of soIdior no. 12, al
1, (soIdior no. 1 goos dovn firsl and llo vloIo ordor of dosconl is disorganizod. Iirsl vo
doscondod in opposilo ordor bul Ialor llo ordor of dosconl vas according lo llo arrivaI of
llo soIdiors lo llo ropo), |!.
517 Soo fiIo "Noslok Ham" in foIdor Air, N.t D.i. Disc, supr. nolo 5.
518 Soo for oxampIo loslimony of soIdior no. 2 (During llo proparalion llo mossago vas
passod llal vo voro oxpoclod lo oncounlor aclivisls vlo vouId lry lo lurl us omolionaIIy
by croaling provocalions on llo IovoI of cursos, spilling, romoving faco covoring olc. bul
vo did nol oxpocl a difficuIl plysicaI confronlalion), |nuir |xp.nsicn c| 20.9.2010, supr.
nolo 451, Toslimony of soIdior no. 5, al 4-5 (Irom llo oulsol vo pIannod for a condilion of
rosislanco bul vo oxpoclod rosislanco llal in llo main vouId allompl lo provonl us from
boarding llo slip. Wo oxpoclod scroams, cursos, sloving, ovon a vioIonl cIasl bul onIy
bIovs |.j Wlon I obsorvo llo incidonl from llo loIicoplor as voII as during llo courso of
llo dosconl I sliII fooI llal I am dosconding lo modoralo plysicaI rosislanco rallor llan lo a
combal silualion. In praclico I find mysoIf in a gonuino ballIo |.j my Iifo is in dangor and
I musl dofond mysoIf and llo rosl of llo soIdiors in llo loam llal I command), Toslimony
of soIdior no. 6, al 1-2 (In llo proparalions and briofings lloy aIvays briofod us llal vo
voro oxpoclod lo oncounlor poaco aclivisls and lloroforo llo prospocls llal vo vouId
lavo lo uso voapons or ollor moans vas vory Iov and from my slandpoinl lloro vas
noarIy zoro probabiIily |...j Ivon aflor I rocoivod bIovs and poopIo jumpod mo lo lurl mo
llo caII llal lloy voro yoIIing "lol voaponry and a loam mombor las faIIon" Iod mo lo
fooI llal mallors lad gono avry), Toslimony of soIdior no.12, al 5 (lloro vas a lugo gap
bolvoon vlal I proparod for vlicl vas boarding a slip vliIo mooling rosislanco from
'poaco aclivisls, and a silualion vloro I am figlling lo dofond my Iifo), loslimony of
soIdior no.15, al 1 (I undorslood llal I vas in a combal silualion againsl poopIo vlo voro
lrying lo kiII mo and nol againsl poaco aclivisls as vo lad boon briofod during combal
proparalion), |!.
Al llo oulsol, il slouId bo nolod llal in rosponso lo llis rosislanco,
llo soIdiors usod forco of various lypos: land-lo-land combal, slooling
vill Ioss-IollaI voapons, incIuding llo uso of fIasl bang gronados,
Tasors, llo slooling of painlbaIIs and boanbags, as voII as llo slooling of
Iivo ammunilion. Tlo concIusions of llo anaIysis of llo IogaIily of llo uso
of forco by llo IDI soIdiors, undor llo circumslancos, viII bo prosonlod
boIov in paras. 232-239. Al llis slago, llo lopic of discussion is onIy a
gonoraI doscriplion of llo circumslancos llal provaiIod al llo limo of
llo soIdiors' fasl-roping onlo llo roof of llo M.ti M.rm.r. as ovidoncod
primariIy by llo slalomonls of llo soIdiors vlo parlicipalod in llo lako-
ovor of llo M.ti M.rm.r. and llo magnolic modia coIIoclod by llo IDI
and furnislod lo llo Commission.
Tlo soIdiors slalod llal as soon as llo fasl-roping commoncod, llo
numbor of IHH aclivisls on llo roof al Ioasl doubIod. SoIdior no. 1 (llo
firsl soIdior lo fasl-ropo from llo loIicoplor) slalod aboul llis mallor as
foIIovs:
"WliIo I vas sliII in llo air, I sav llal dozons of poopIo voro
quickIy joining llo 15 poopIo vlo voro aIroady lloro, and lloy
voro voaring gas masks, Iifo jackol, and lloy voro armod vill
iron cIubs, rods, vronclos, axos."
519
SoIdior no. 3 slalod: "As I vas dosconding llo ropo, I sav llal llo
numbor of poopIo on llo roof muIlipIiod by four."
520
Tlo slalomonls of llo soIdiors vlo fasl-ropod from llo firsl
loIicoplor indicalo llal lloy oncounlorod a roaI rosislanco forco, armod
vill cIubs, iron rods, clairs, olc. In a 23-socond vidoo rocordod by ono of
llo fIoliIIa parlicipanls vlo vas on llo roof of llo M.ti M.rm.r. vlon
llo soIdiors doscondod from llo firsl loIicoplor, ono can soo a numbor
of soIdiors rappoIIing on llo ropo from llo loIicoplor, vliIo llo IHH
aclivisls, aII of vlom aro voaring Iifo jackols, boal llom vill cIubs, lil
llom vill fisls, and kick llom.
521
In llo vidoo, sovoraI soIdiors aro aIso
soon Iying on llo dock, surroundod by IHH aclivisls.
522

Tlo vidoo of llo M.ti M.rm.r.s dock from llo IDI's vidoo dovicos
on llo aoriaI obsorvalion posl aIso documonls somo of llo vioIonco
ompIoyod againsl llo IDI soIdiors vlo doscondod from llo loIicoplors.
521 Soo vidoo fiIo "M2U0004" in foIdor scn_|.n!c.m(si|tcr#2 in Vi!cc foIdor, Ar.o D.i. Disc,
supr. nolo 506.
522 Il slouId bo monlionod llal al llo ond of llo vidoo, an IDI soIdior is soon firing a pisloI
al ono of llo IHH aclivisls vlo is aboul a molor avay from lim and llo Iallor faIIs lo llo
fIoor.
According lo vlal is soon on fiIm, al approximaloIy 4:32 a.m., llo firsl
soIdior rappoIIod dovn llo ropo. As lo roaclod llo roof, four mon allackod
lim, lil lim, and draggod lim. Ollor soIdiors can aIso bo soon as lloy aro
fasl-roping dovn and aro immodialoIy allackod upon Ianding, vill rods,
objocls llrovn al llom, pusling, and puncling. Tlo aoriaI Iookoul vlo
oporalod llo vidoo dovico slalod: "As lloy roaclod llo roof, I sav sovoro
vioIonco diroclod al llo soIdiors, incIuding boaling llom vill crov-bars,
raiIings, clairs, olc."
523
133. Tlroo soIdiors, soIdior no. 1, no. 3 and no. 4, voro allackod, boalon,
and llrovn onlo llo Iovor dock, from vloro lloy voro lakon boIov dock.
SoIdior no. 1 slalod:
"Wlon I roaclod a loigll of 2 - 2.5 molors from llo slip, poopIo
grabbod llo ond of llo ropo and puslod mo lo llo sido. Boforo I
managod lo loucl my fool lo llo dock, aboul lon poopIo jumpod
onlo mo and bogan brulaIIy boaling mo from ovory diroclion,
using cIubs, molaI rods and fisls, and vlalovor lloy couId grab.
Tlo bIovs voro ovor my vloIo body and voro conconlralod
mainIy in llo aroa of my faco and load. Il is imporlanl lo nolo
llal al llis slago I vas nol armod - my voapon vas faslonod
bolind my back and in my vosl pockol I lad a lasor (oIoclric
slockor) vlicl vas compIoloIy irroIovanl in Iigll of llo brulaI
allack on mo. Al llis slago I sonsod a roaI and immodialo llroal
lo my Iifo, and I lriod lo roacl llo voapon (a mini-Uzi) on my
back. I onIy managod lo opon llo cIips llal voro socuring llo
voapon bul I didn'l manago lo roacl llo voapon. Al llis slago
I vas occupiod vill allompls lo roacl my voapon vliIo lrying
lo prolocl mysoIf as bosl I couId from a falaI allack from llo mob,
and I vailod for llo rosl of llo soIdiors lo arrivo.
Tlo allackors puslod mo lovard llo sido of llo slip. Bocauso
of llo Iargo numbor of allackors, I did nol manago lo rosisl. A
numbor of allackors grabbod mo by my Iogs and my lorso and
llrov mo ovor llo sido lo llo dock boIov, aboul 3.5 molors.
Up unliI llis slago, I did nol soo any ollor soIdior aboard llo
slip, and, lo my knovIodgo, I vas llo onIy soIdor vlo lad
fasl-ropod onlo llo slip. Upon Ianding on llo middIo dock, I
fraclurod my arm, and a mob of dozons of poopIo allackod mo
and basicaIIy Iynclod mo - incIuding puIIing off my loImol,
slrangIing mo, slicking fingors inlo my oyos lo gougo llom oul
of lloir sockols, puIIing my Iimbs in ovory diroclion, slriking mo
in an oxlromoIy larsl mannor vill cIubs and molaI rods, moslIy
on my load. I lruIy foIl llal I vas aboul lo dio, vay boyond vlal
523 Toslimony of llo aoriaI Iook-oul, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451.
vo dofino as Iifo-llroaloning. Tlo bolavior of llo poopIo al llis
slago vas dofiniloIy Iiko figllors of an onomy vlicl las como lo
kiII llo ollor sido, llal is, mo. I foIl llal al any momonl I vouId
lako a bIov lo llo load vlicl vouId kiII mo. Al llis slago llo
mob succoodod in loaring my vosl off of mo (vlicl incIudod llo
voapon) and llo voapon foII oul of llo vosl.
I roaIizod llal I vouId nol bo abIo lo ovorcomo aII of llo allackors
and in ordor lo savo my Iifo I lriod lo jump inlo llo valor bul:
(a) I vas vorriod llal I vouId nol faII inlo llo valor bul rallor
onlo llo dock boIov mo, (b) llo mob bIockod my accoss lo llo
sido. Al a corlain slago I managod lo roacl llo voapon, I cockod
il, and I slol ono of llo allackors in lis Iog.
Tlo considoralions in slooling voro as foIIovs:
1) To dislanco llo allacking mob from mo and lo minimizo llo
injury lo mo.
2) To signaI my Iocalion lo llo rosl of llo loam on llo slip and
llo facl llal I vas in dislross and my Iifo vas in dangor.
ImmodialoIy aflor I firod llo slol, I look an oxlromoIy larsl bIov
diroclIy lo my load from a molaI rod. Tlis slunnod mo briofIy,
and in llis socond lloy grabbod llo voapon from mo. Al llis
slago, I llougll llal llo mob vanlod lo lako mo as a caplivo and
uso mo as a bargaining clip for onlry lo Gaza or in gonoraI. A Iol
of bIood bogan slroaming dovn my faco from llo vounds lo my
load. Tlo mob conlinuod lo lil mo and pusl mo forvard insido
llo slip."
524
SoIdior no. 3 (llo commandor of llo forco on loIicoplor 1 and llo
llird vlo fasl-ropod from llis loIicoplor) slalod aboul llo ovonls llal
procodod lis boing lakon boIov llo slip's dock:
"WliIo dosconding dovn llo ropo I soo llal lloy aro lrying lo
llrov difforonl objocls al us. I vas slruck vill molaI poIos and
rocks. As I roaclod llo roof, I fooI a vory slrong bIov lo llo nock
from bolind, and I soo around mo aboul 15-20 poopIo vlo aro
surrounding mo - somo of llom lavo cIubs, somo lavo knivos,
axos.
Tloy aro aII voaring orango Iifo vosls, somo of llom lavo |.|ici
ovor lloir facos, somo lavo gas masks, and somo lavo lloir facos
uncovorod. I roaIizo immodialoIy llal my Iifo is in dangor, I
roaIizo llal llo Iivos of llo ollor soIdiors vlo fasl-ropod and aro
fasl-roping aro in dangor. I undorsland as llo commandor llal
I am nol in conlroI of llo silualion. I manago lo villdrav my
524 Toslimony of soIdior no. 1, |!., al 1-2.
mini-Uzi vlicl is socurod on my back (llo voapon is faslonod lo
llo proloclivo vosl, in a vay llal onabIos il lo bo "dravn" rapidIy).
WliIo I'm draving llo voapon, I fooI mysoIf fIying - as llo rosuIl
of boing puslod.
Somoono puslos mo forcofuIIy and I faII onlo llo sido. I find
mysoIf silling on llo dock vill my back lo llo sido and facing aII
llo poopIo surrounding mo. Tlo poopIo surrounding mo lavo
axos, knivos, molaI poIos and cIubs, and lloy'ro running lovards
mo - il's a mallor of a socond or lvo boforo lloy roacl mo. I
manago lo cock llo voapon and roIoaso lvo buIIols.
I don'l knov if I lavo lil anyono or vlo. IoopIo immodialoIy
roacl mo, grab llo voapon from mo, and lil mo vill fuII forco
vill poIos and cIubs. I sil againsl llo sido vill my knoos bonl -
my sido is lurnod lovard llo sido of llo vaII, lands prolocling
my faco. A mob of poopIo around mo aro lilling mo vill many
bIovs, mainIy lovards my load. Tlo poopIo surrounding mo aro
going borsork, and lloy'ro conslanlIy slouling "AIIalu Akbar".
I fooI llo bIovs on aII parls of my body and, as I said, many
bIovs lo my load. Aflor aboul lvo minulos vliIo llo poopIo
aro boaling mo and I'm lrying lo prolocl mysoIf, I fooI a numbor
of poopIo grabbing my lands and fool, Iifling mo up. In llis
socond I roaIizo llal lloy inlond lo llrov mo ovor llo sido inlo
llo valor. I rosisl, llrusl viIdIy, slruggIo, bul villoul succoss. Il
is imporlanl lo slalo llal aIso during llis limo I conlinuo lo lako
vory slrong bIovs lo llo abdomon. I am figlling vill aII my
slrongll unliI a corlain slago vlon lloy manago lo gol mo ovor
llo sido of llo boal. I am loIding onlo llo sido, vill my lands,
and langing from llo sido. Al llis slago, llo poopIo from abovo
mo aro lilling my lands and a socond group of poopIo is puIIing
mo from boIov by grabbing my Iogs.
Vory quickIy, I faII lo llo IovoI boIov llo roof. As I Iand, anollor
group of poopIo aro running lovards mo. Horo as voII lloro aro
slouls of AIIalu Akbar. I am Iying on llo dock, lloro aro many
poopIo abovo mo, ono of llo poopIo jumps on mo and I fooI a
slarp pain in llo Iovor abdomon. I pul my land lloro and I fooI
a knifo, and I roaIizo llal I'vo boon slabbod, I inslinclivoIy puII
llo knifo oul of my abdomon. Il is imporlanl lo slalo llal, during
llis slago as voII, I'm laking many bIovs, incIuding from cIubs."
525
SoIdior no. 4, llo signaI oporalor for soIdior no. 3 and llo fourll
vlo fasl-ropod from llo firsl loIicoplor, slalod:
"As I roaclod llo dock, I nolicod a lorrorisl vill an iron crov-
bar vailing lo slriko mo in llo load, bul vlon lo lriod lo lil mo,
I puslod lim, and immodialoIy anollor four lorrorisls jumpod
onlo mo vliIo ono of llom vrappod llo clain around my nock
and slrangIod mo, vliIo I am slruggIing vill llom I llougll of
draving my pisloI bul I foIl llal if I drov il, bocauso lloy voro up
againsl mo and kicking mo, I vouIdn'l bo abIo lo slool and lloy
vouId grab llo pisloI from mo. Al llis slago, I Iosl consciousnoss
(apparonlIy from llo slrangIing - I sav slars), and vlon I avoko,
I foIl llal I vas in llo air, and llroo / four lorrorisls aro llroving
mo from llo roof lo llo bridgo dock. I vas vory loavy, and I foIl
a vory quick and forcofuI faII. Aboul 20 mon voro vailing lloro
vill poIos, axos and moro, and as I foII (llis soomod lo mo as if
il voro pIannod), lloy grabbod mo and draggod mo insido llo
slip."
526
Il slouId bo nolod llal soIdior no. 4 vas crilicaIIy voundod during
llis ovonl. Ho sufforod from a fraclurod skuII, a lomaloma in lis rigll
oyo, and convuIsions. Aflor llo ovonl, lo vas anosllolizod, pIacod on
rospiralors, and oporalod on for a fraclurod skuII.
527
134. Tvo soIdiors from llo lakoovor forco in llo firsl loIicoplor voro
voundod by Iivo firo, vlicl, according lo lloir slalomonls, vas slol al
llom by IHH aclivisls: soIdior no. 2 (llo socond soIdior vlo fasl-ropod
from llo firsl loIicoplor) vas slol in lis abdomon by a buIIol vill 9 mm
circumforonco, soIdior no. 5 vas slol in lis rigll knoo.
SoIdor no. 2 slalod:
"Upon oxiling, I didnl soo vlal vas lapponing boIov and I fasl-
ropod, during vlicl I fooI puIIing on llo ropo and llal lloy'ro
lrying lo knock mo off. Ivon boforo I Iandod on llo dock, I gol
punclod vill a cIub lo llo load and I roaIizo I'm onloring an
oxlromoIy vioIonl silualion and nol as I lad pIannod. Aboul fivo
lorrorisls jump onlo mo and I'm figlling viIdIy vill llom. I vas
allackod vill cIubs, poIos, molaI clairs, fisls, lloy slrangIod mo
and lriod lo llrov mo ovor llo rigll sido of llo M.ti M.rm.r.. I
gol dovn inlo a laIf-knooIing posilion and I loId onlo llo raiIing
(llo raiI of llo slip). I roaIizod my Iifo vas in dangor and lloy'ro
lrying lo kiII mo and llrov mo ovor in ordor lo vipo mo oul. I
foIl llal I vas figlling for my Iifo and llal llis vas nol a gamo
of slopping a slip, bul a ballIo for my Iifo, and so I fougll back
lard.
527 Soo |DI ccmp|ciicn rcspcnsc c| 15.11.2010, supr. nolo 400, al para. I.
Al llis slago I foIl a slrong bIov lo my abdomon on llo Iofl sido
and I roaIizod llal il vas IikoIy llal I lad boon voundod by a
buIIol in my abdomon...."
528
Il slouId bo nolod llal soIdior no. 2 vas indood injurod by a buIIol
vound in llo abdomon, lo undorvonl lvo surgorios, and lo roquirod
plysiollorapoulic rolabiIilalion.
529
SoIdior no. 5 vas injurod by sovoro vioIonco usod againsl lim,
incIuding Iivo firo inlo lis rigll knoo and slabbing vill a knifo. Tlo
soIdior slalod:
"I Iandod vill my fool onlo llo dock, vliIo I'm llroving off
llo rappoIIing gIovos. I slarl lo lako bIovs from molaI poIos,
and I aIso cIoarIy discorn a lorrorisl vill an axo in lis land. I
villdrav aboul four lo fivo molors lovards llo slorn in ordor lo
dislanco mysoIf from llo oncounlor by llo ropo, and a group of
aboul six (and il foIl Iiko moro) pursuos mo lovard llo slorn. I
cIoarIy romombor vlal llo poopIo lad in lloir lands: lloro voro
llroo poopIo vill molaI poIos vlicl voro Iigll-bIuo (llo coIor
of llo slip). Al firsl, I didn'l roaIizo vlal lloy voro. I llougll
maybo lloy voro a lypo of loy, bul as soon as I gol lil vill ono of
llo poIos, I roaIizod llal lloy voro molaI poIos. Tloro voro lvo
poopIo vill knivos dravn, running aflor mo vill llo inlonlion
of slabbing mo, and anollor porson vill a crov-bar - a looI mado
of molaI, aboul a laIf-molor Iong, vlicl vas slarp on ono ond
and fIal on llo ollor |...j
I'm surroundod by six poopIo and anollor porson vlo arrivos a
fov soconds Ialor. Tlis porson las a Iargo camora lripod in lis
land and lo joins llo lorrorisls and boals mo vill llo lripod.
My silualion al llis poinl is llal, as I said, I'm surroundod by
lorrorisls. Tloy'ro boaling mo vill poIos. I'm golling lil aII ovor
my body. I lako sovoraI bIovs lo llo faco vill llo molaI poIos. I
lako many bIovs lo llo load, my load is proloclod by llo loImol
(aflor llo ballIo vas ovor, my loImol vas compIoloIy smaslod). I
am golling bIovs lo my body, vlicl is proloclod by my coramic
vosl. I'm lrying lo prolocl my faco vill my arms and my arms
aro golling boalon. Ono of my arms broaks |...j I am lrying vill
llis land lo lako oul my pisloI, vlicl is faslonod lo my Iog in a
loIslor, bul I don'l succood, bocauso lloy soo my allompl lo drav
llo pisloI and lloy slop mo by lilling my land vill molaI rods.
Tlo figlling conlinuos a IillIo Iongor, and al llis slago I roaIizo
I'm nol managing lo villdrav llo pisloI. I lry lo find a soIulion,
and llon a lorrorisl runs lovards mo vill a knifo dravn and
528 Toslimony of soIdior no.2, |!., al 2.
slabs mo vill fuII forco in llo closl. Wlal slops llo knifo is
llo coramic vosl I'm voaring. Tlo lorrorisl vlo lriod lo slab
mo sooms surprisod llal llo knifo vas sloppod by llo coramic
slioId and I pusl lim off of mo vill a bIov lovards lis load. I
roaIizo llal I nood a voapon lo dofond mysoIf. I run lovard ono
of llo lorrorisls vlo is allacking mo, I grab llo iron poIo from
lis land, and I uso il lo slarl slriking back al llo lorrorisls vlo
aro surrounding mo - bIovs vill llo iron poIo in my land. I foIl
llal from llo momonl I look llo iron rod llo bIovs incroasod. I
slarlod lo fooI lloir impacl and il vas lard for mo lo broallo. I
aIso slarlod lo fooI dizzy. Al llis slago, I fooI a cul in llo aroa of
my oar or load, il isn'l cIoar lo mo oxaclIy vloro. I lurn and soo
somoono vill a knifo - I lil lim vill llo iron rod and llo porson
faIIs. Wlon I lurnod lovards llo lorrorisl vill llo knifo, my back
vas Iofl oxposod and llo lorrorisls vlo voro bolind mo slruck
a numbor of bIovs in llo aroa of llo back of my nock. I rolroal
a fov slops and al llis slago I slumbIod, my rigll Iog buckIod
undor. I faII lo llo dock. I faII vloro undornoall mo lloro is an
opon onlranco - llo lalcl on llo rigll sido of llo roof. Il's aboul
a molor vido. Tlo poopIo abovo aro lrying lo pusl mo dovn
llrougl llo oponing lo llo IovoI boIov, and, al llo samo limo,
lloy aro lrying lo puII mo dovn from boIov. I manago lo soo
llal undornoall mo on llo dock a mob of poopIo lavo gallorod.
I roaIizo llal, in a silualion Iiko llis, I cannol Iol llo lorrorisls
pusl mo dovnvards. I roII aboul a molor lo llo sido in ordor lo
dislanco mysoIf from llo oponing. Al ovory slago, llo bIovs vill
llo poIos conlinuo, non-slop. I gol lil in llo load, llo abdomon,
and llo Iogs. Aflor I manago lo gol avay from llo lalcl, I lako
a numbor of bIovs lo llo load and llo back of my nock, and
I Ioso consciousnoss. Tlo noxl slago llal I romombor -- vlon I
avoko from a vory slrong pain in my knoo, I soo soIdiors from
llo unil undor my command pulling a lourniquol on mo. During
a numbor of minulos, I aIlornalo in and oul of consciousnoss. I
loar a roporl by llo soIdior vlo is llo commandor of llo modicaI
loam, lransmilling a roporl aboul my condilion. Al llis slago,
I roaIizo for llo firsl limo llal I lavo boon slol in llo knoo. I
aIso roaIizo llal I lavo a sIasl in llo oar and a sIasl in llo load,
and fracluros in my arm, bocauso my arm is dislorlod and I lavo
sovoro pains in llo oIbov."
530
SoIdior no. 5 vas indood injurod, inicr .|i., by a buIIol slol in llo
knoo (and lo aIso sufforod from bIunl lrauma lo lis load and abdomon, a
530 Toslimony of soIdior no.5, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 2-4, Soo aIso
loslimony of soIdior no.6, |!., al 2, Toslimony of soIdior no. 6, |!., al 3, Toslimony of soIdior
no. 7, |!., al 1, Toslimony of soIdior no. 8, |!., al 2, Toslimony of soIdior no. 9, |!., al 1,
fracluro in lis rigll land, a vound lo lis rigll oar and lomorrlaging in
lis oar drum), and lo undorvonl surgory aflor llo ovonl.
531
Tlo oxlromo vioIonco vlicl vas infIiclod upon llo soIdiors vlon
lloy fasl-ropod from llo firsl loIicoplor onlo llo roof of llo M.ti M.rm.r.
is aIso doscribod in llo slalomonls of soIdior no. 6,
532
soIdior no. 7,
533
soIdior
no. 8,
534
soIdior no. 9,
535
soIdior no. 10,
536
soIdior no. 11,
537
soIdior no. 12,
538

soIdior no. 13,
539
soIdior no. 14,
540
and soIdior no. 15.
541
532 Soo loslimony of soIdior no. 6, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 2-3, In lis
loslimony lo doscribod llal upon lis arrivaI lo llo Marmara a clair vas llrovn al lim by
ono of llo mon on dock and llis slruck lis faco, anollor man allomplod lo cloko lim and
lo vas sovoroIy boalon on llo load unliI lo foII lo llo dock bIooding. Iikoviso, an allompl
vas mado lo pusl lim lo llo sido of llo slip and llrov lim lo llo Iovor dock.
533 Toslimony of soIdior no. 7, |!., al 1, Tlo soIdior doscribos in lis loslimony llal immodialoIy
aflor a clair vas llrovn al lim by ono of llo aclivisls (as lo caIIod llom), anollor slruck
lim in llo load vill a cIub, and so lo foII lo llo ground and vas boalon vliIo Iying on llo
fIoor.
534 Toslimony of soIdior no. 8, |!., al 2, According lo llo soIdiors loslimony immodialoIy
upon lis arrivaI on llo M.ti M.rm.r., llroo lorrorisls (as lo caIIod llom) jumpod lim
and boal lim vill cIubs and allomplod lo cloko lim and broak lis nock.
535 Toslimony of soIdior no. 9, |!., al , In lis loslimony lo doscribos lov lo vas boalon vill
a crovbar in llo load unliI lis loImol camo off and lo foII lo llo ground. WliIo Iying on
llo fIoor lo vas boalon by aboul fivo poopIo vill bars, a clair, and lloir baro lands.
536 Soo loslimony of soIdior no. 10, |!., al 1-2, In lis loslimony lo doscribos llal upon roacling
llo roof of llo M.ti M.rm.r. lo vas allackod by 4-5 lorrorisls (lis lorm) vlo did nol
slop lilling lim vill bals/ molaI slicks/ axos and allomplod lo pusl lim lo llo sido of
llo slip and llrovn lim lo llo dock boIov. Ho goos on lo doscribo lov lo vas unabIo lo
roacl llo voapon vlicl vas socurod on lis back, and so villdrov inlo limsoIf in ordor
lo Iosson llo sovorily of llo injurios.
537 Toslimony of soIdior no.11, |DI Ccmp|ciicn Rcspcnsc c| .11.2010, supr. nolo 486, al 1, In
lis loslimony lo doscribos running lovards a numbor of parlicipanls vlo voro boaling
ono of llo soIdiors and lloy allackod lim, boaling lim in llo load and broaking lis land.
Iikoviso lo doscribos lov a clair llrovn al lim broko llo painlbaII gun lo loId (llo gun
vas oul of Commission and couId nol bo usod).
538 Soo loslimony of soIdior no. 12, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 1-2. In lis
loslimony llo soIdior doscribos a clair boing llrovn al lim and an allompl lo slab lim in
llo land vill a knifo.
539 Soo loslimony of soIdior no. 13, |!., al 2-3, vloro lo doscribos a sonsalion of morlaI dangor
and of a minorily of soIdiors facing a Iargo numbor of vioIonl aclivisls. Tlo soIdior aIso
doscribod lov lo vas caugll by llroo rosislors, ono boal lim vill a molaI bar, llo socond
puIIod lim povorfuIIy and mado lim disIocalo lis slouIdor, and llo llroo allomplod lo
llrov lim ovor llo sido lo a Iovor dock of llo slip.
540 Soo loslimony of soIdior no. 14, |!., al 1, vloro lo doscribos lov lo nolicod upon lis
dosconl lo llo roof of llo Marmara llal llo soIdiors in lis forco voro surroundod, oacl
soparaloIy, by a numbor of rosislors armod vill coId voaponry. Ho aIso doscribod llal lo
nolicod ono rosislor aiming a rovoIvor al sovoraI soIdiors.
541 Soo loslimony of soIdior no. 15, |!., al 1-2, vloro lo doscribos lov lo nolicod oacl ono of
llo soIdiors vas surroundod by 3-5 aclivisls, somo of llo soIdiors voro Iying on llo fIoor.
Tlo soIdiors voro boalon vill cIubs and molaI bars. Tlo soIdior aIso sav ono axo boing
usod by llo rosislors. Ho goos on lo doscribo lvo rosislors running lovards lim vill
135. In addilion lo llo vioIonco llal llo IDI soIdiors oncounlorod on
llo dock of llo M.ti M.rm.r., llo llroo soIdiors vlo voro abduclod and
lakon boIov llo dock of llo slip by llo IHH aclivisls (soIdior no. 1, soIdior
no. 3 and soIdior no. 4) aIso slalod llal vliIo lloy voro loId boIov dock,
approximaloIy forly minulos in duralion, lloir oquipmonl and voapons
voro lakon from llom, lloy voro boalon, and llo nocossary modicaI
lroalmonl roquirod in lloir condilion vas villloId from llom.
SoIdior no. 1, vlo vas allackod and llrovn onlo llo Iovor dock
(a loigll of aboul 3.5 molors), slalod llal vliIo lo vas loId boIov dock,
lo vas boalon on llo load vill cIubs and IHH aclivisls slrangIod lim.
SoIdior no. 1 aIso slalod llal aIllougl lo lad a vory doop cul on lis scaIp,
llo doclor vlo lroalod lim onIy vipod llo bIood from lis foroload. Ho
doscribod llo ovonls as foIIovs:
"Wlon lloy brougll mo insido |boIov llo slip's dockj, I roaIizod
llal loro my plysicaI rosislanco vouId bo fuliIo and llal I vouId
nol bo abIo lo figll llom aII, so I jusl Iookod for an opporlunily
lo oscapo and jump inlo llo valor. Al llis slago, I vas corlain
llal I vas going lo dio, and aII kinds of sconarios slarlod running
llrougl my mind: boing oxoculod by llo mob, boing oxoculod
and il boing plolograplod lo dislribulo around llo vorId and
slov lloir acliovomonl, abducling mo and bringing mo inlo
Gaza (GiIad SlaIil), olc.
Al llis poinl, I lriod lo llink of vays lo oscapo, Iiko jumping
inlo llo valor, jumping oul of a porlloIo, olc. Aflorvards, lloy
droppod mo furllor dovn boIov dock, vliIo plolograpling
mo many limos (vidoo, sliIIs, a roaI "pross conforonco") and lloy
conlinuod lo lil mo, moslIy in llo load and mainIy using cIubs.
Will ovory bIov I look lo my load, I vas vorriod llal I vouId
fainl, or vorso, llal I vouId dio. During aII of llis movomonl
boIov dock, ono onomy slrangIod mo from bolind and lvislod
my arms from llo back, vliIo vo voro moving, so llal ovoryono
vlo passod by mo mado suro lo slriko al mo and lako parl in
boaling mo.
Aflor dosconding laIf of llo slaircaso, I bogan lo caII, "Doclor,
Doclor," and a doclor vas brougll lo mo. Al llis slago, I lad a
vory doop sIasl in my load. Tlo doclor "lroalod mo" in fronl of
llo camoras, vlon acluaIIy llo onIy lling lo did vas lo vipo llo
bIood from my foroload. Ho didn'l loucl llo injury lo my skuII
al aII. |SubsoquonlIy, al a lospilaI in IsraoI, lo vas diagnosod
vill a vory doop scaIp vound and a fraclurod skuII, llo sIasl
roquirod 14 slilclos.j. Aflorvards, lloy look mo boIov lo llo
molaI bars in an allompl lo lil lim, sinco lo managod lo gol avay, bul in llo ond vas
slruck on llo land (apparonlIy by a difforonl rosislor).
passongors laII and Iay mo dovn on llo couclos, and ono of llo
onomios guardod mo vliIo vaiving a cIub ovor my load. I askod
for valor bocauso I llougll I vas going lo fainl from llo Ioss of
bIood. Al firsl lloy didn'l bring mo valor, and onIy aflor aboul
10-15 minulos lloy brougll mo valor."
542
SoIdior no. 3, vlo, as nolod, vas voundod by boing slabbod in
llo abdomon vill a knifo, doscribod boing draggod boIov dock, vliIo
boing boalon and lis lands boing puIIod ovory limo lloy grabbod onlo
somolling. Tlo soIdior aIso doscribod lis injurios al llis slago - massivo
lomorrlaging from llo abdomon vill lis inloslinos prolruding, a doop
sIasl on lis Iofl arm and bIood slroaming from lis noso. According lo lis
slalomonl, a doclor vlo sav lim al lis roquosl gavo lim onIy a gauzo
pad in ordor lo lroal lis injurios, and lo loId llo pad againsl lis abdomon
vill lis undorvoar. SoIdior no. 3 aIso doscribod llal, boIov dock, lis
lands and fool voro bound and lo doscribod llo facl llal a guard vill a
voodon poIo vas slalionod by lim. As lo doscribod il:
"Al a corlain slago, a numbor of poopIo drag mo inlo llo slip.
Wlal's running llrougl my load is llal lloy'ro dragging mo inlo
llo slip in ordor lo kiII mo. I lry lo rosisl and lo grab al anylling
aIong llo vay. Ivory limo I rosisl, I gol sovoroIy boalon. Al llo
firsl slago, lloy aro dragging mo insido from llo sido inlo llo
slaircaso. Boforo lloy slarl lo bring mo dovn llo slairs, lloy lako
my oquipmonl off of mo. I rosisl vill aII my slrongll, villoul
succoss. I rocaII a Iol of slouling lloro, madnoss in llo poopIo's
oyos, lalo. I roaIizo llal llis is llo ond of mo, and llal lloy'ro
going lo kiII mo. Tloy slarl dragging mo inlo llo slairvoII, lvo
poopIo, ono from abovo and ono from boIov. I lry lo grab onlo llo
banislors and llo raiIings, llo vloIo vay - bocauso I roaIizo llal,
as soon as I gol boIov and roacl llo Iovor IovoI, lloy'ro going
lo kiII mo. I loar llo socond loIicoplor arriving, I loar voicos,
slooling, and oxpIosions on llo dock, and I lopo llal villin a
slorl limo lloy'II como lo roscuo mo, and I roaIizo llal llis is my
clanco lo slay aIivo. Ivory limo I grab onlo somolling, my lands
gol burns (llo marks on my lands aro sliII visibIo loday).
WliIo lloy'ro laking mo dovn llo slairs, my panls faII dovn and
my slirl risos up - I soo llal I am bIooding massivoIy, llal is,
I'm Iosing a Iol of bIood, and I can loII llal parl of my inloslinos
aro prolruding (loday I knov llal lloy camo oul as a rosuIl of
puIIing llo knifo oul of my abdomon). I aIso nolico a doop cul in
my Iofl arm, from vlicl I'm aIso Iosing a groal quanlily of bIood.
542 Soo loslimony of soIdior no. 1, |!., al 2-4.
I aIso fooI bIood fIoving from my noso inlo my moull. Al llis
slago, I lavo no load covoring bocauso lloy romovod il from mo
aflor lloy look off my oquipmonl.
During llo dosconl in llo slaircaso, I idonlify soIdior no. 4 Iying on
llo Iovor IovoI, surroundod by a Iargo numbor of crazod poopIo,
vliIo lo's conlinuousIy boing boalon. Tloy'ro conlinuing lo drag
mo dovn llo slairvoII - vliIo doing so, my panls faII dovn and
my slirl risos up. Al llis slago, lloy movo a bil avay from mo,
and I find mysoIf surroundod by poopIo vill camoras, vidoo and
sliIIs, and lloy plolograpl mo a numbor of limos, vill plolos
and fIaslos. Al llis slago, I ask for a doclor and poinl lo llo cul
in my abdomon. I rocoivo a gauzo pad, vlicl I pross againsl llo
vound in my abdomon and loId in pIaco using llo oIaslic of my
undorpanls.
My picluro of llo silualion al llis poinl is Iiko llis. I vas
draggod lvo fIiglls dovn llo slairvoII, I'm Iying in llo slaircaso
- opposilo llo onlranco lo llis IovoI of llo slip. SoIdior no. 4 is
Iying al llo onlranco lo llis IovoI, surroundod by poopIo vlo, on
llo ono land, aro plolograpling lim and mo, and al llo samo
limo lloy'ro conlinuing lo boal lim.
Tvo poopIo I romombor from llis slago voro voaring (groon)
Hamas fIags vrappod around lloir loads, vlo voro vory oagor
lo kiII us. Tloy lriod lo slrangIo mo and soIdior no. 4. Tlo lalo
in lloir oyos vas jusl burning. Tloy loId us in IngIisl llal lloy
voro going lo kiII us. ApparonlIy, vlal sloppod llom from
succooding vas llo poopIo vlo provonlod llom from doing il.
Tloy puslod llom avay from llo aroa.
Aflorvards, lloy conlinuo lo drag mo dovn anollor IovoI
llrougl llo slairvoII, and lloy bring mo inlo a Iargo laII. Upon
onloring llo laII, I idonlify soIdior no. 1, vloso onliro faco is
covorod in bIood. Tloy Iay mo dovn on a coucl opposilo soIdior
no. 1. Tlo laII is Iargo, vill many couclos and dozons of poopIo
in llo laII. Tloro aro vomon in il, vill covorod facos, vlo aro
laking caro of llo voundod poopIo, bul nol us. }usl aflor lloy
bring mo dovn, lloy bring soIdior no. 4, and Iay lim dovn on
llo coucl noxl lo mo.
Tlo curronl silualion is llal llo llroo of us aro in llo laII on
llroo couclos. SoIdior no. 1 is silling, soIdior no. 4 is Iying dovn,
and I'm Iying dovn on llo coucl opposilo llom, al a dislanco of
aboul llroo molors.
Tloy liod my lands and fool vill ropo. Tloy slalion a porson
abovo mo vlo is loIding a voodon poIo in ono land, and vill
lis ollor land lo's loIding onlo my arm. Ho boals mo vill llo
voodon poIo, and lo indicalos lo mo vill lis land lo bo quiol,
and llal any movomonl by mo viII rosuIl in larsl bIovs vill
llo voodon poIo. ApparonlIy as a rosuIl of llo Ioss of bIood, I
slarlod lo bocomo groggy. I nolico a group congrogaling around
soIdior no. 4, I Iook in lis diroclion and I soo llal lloy aro silling
on lim and boaling lim vill larsl bIovs. SoIdior no. 4 slarls lo
convuIso. Boll soIdior no. 1 and I slarlod slouling in IngIisl for
llo doclor.
Al llis poinl, llo aclivisls brougll valor and pourod il ovor lis
faco and lo sloppod and Iay dovn quiolIy. I vas suro llal al llis
poinl lo vas doad."
543
SoIdor no. 4, llo signaI oporalor for soIdior no. 3, sufforod convuIsions
and Iosl consciousnoss vliIo lo vas boIov dock duo lo llo bIovs lo lis
load. As lo slalod:
"Aboul 20 poopIo voro vailing lloro vill poIos, axos, and
ollor |voaponsj, and as I foII (llis soomod lo mo lo lavo boon
pIannod), lloy grabbod mo and draggod mo inlo llo slip. I nolico
knivos and lloy cul aII of my oquipmonl off of mo, and lloy'ro
aIso boaling mo llo vloIo limo, during vlicl limo I sav soIdior
no. 3 aflor lloy lad slabbod lim in llo abdomon. I lriod lo gol
lo lim and lo loIp lim, and lo indicalod lo mo lo bo caIm and
nol do anylling crazy, so llal lloy vouIdn'l injuro mo furllor.
Tloy look us dovn - I vas prolly foggy - llrougl llo slairvoII
inlo llo slip boIov dock. Tloy brougll us inlo a room, during
vlicl limo I loard aII kinds of slouling, vlicl vasn'l cIoar, bul
il soundod lo mo Iiko Hanoon Zoabi. I gol lo llo room and on llo
vay lloro I vas boalon llo vloIo limo. In llo room, lloro voro
many bIuo couclos. Tloy Iay mo dovn on ono of llo couclos.
Tloro voro lvo poopIo, ono of vlom boal mo llo vloIo limo
vliIo I vas liod lo llo coucl, and lloy aIso loId mo, and, during
llis, llo guy conlinuos lo boal mo, and lloro vas anollor guy
vlo lriod lo caIm lim dovn, bul il didn'l loIp. Al llis slago, I foIl
foggy and nol good, I foIl my load. I sav soIdior no. 1 vill lis
land on lis load, covorod vill bIood, and ono of llo lorrorisls,
vliIo ono of llom vas silling on mo llo vloIo limo (or llis vas
llo samo ono vill a pisloI in lis land) and vlisporing llings lo
mo llo vloIo limo in Arabic, and I roaIizod llal il soomod Iiko
I vas going lo dio. Al llis poinl, I Iosl consciousnoss (from my
frionds' doscriplion, I aIso slarlod lo lavo convuIsions).
544
In a 34-socond vidoo lakon by ono of llo fIoliIIa parlicipanls,
soIdior no. 1 is soon insido llo slip boIov dock, bIooding from lis load and
groaning in pain, vliIo lo is boing guardod by an IHH aclivisl voaring
544 Soo loslimony of soIdior no. 4, |!., al 2.
a Iifo jackol and a gas mask and loIding a Iargo voodon cIub.
545
In a
20-socond vidoo, soIdior no. 4 is soon Iying on llo fIoor, insido llo slip
boIov dock, vliIo an IHH aclivisl vill a proloclivo vosl and an iron rod is
loIding lim. Ollor poopIo aro soon vlo aro plolograpling llo soIdior.
546

In anollor vidoo, soIdior no. 3 is soon vliIo lo is boing forcibIy draggod
dovn llo slairvoII inlo llo slips' inlorior by an IHH aclivisl voaring a
proloclivo vosl and a gas mask. Tlo soIdior is soon lrying lo loId onlo llo
banislor, lo is forcofuIIy puIIod off, an IHH aclivisl slrikos lim, and llo
soIdior is bIooding from lis noso.
547
136. Il slouId bo nolod llal llo slalomonls of llo llroo soIdiors vlo
voro abduclod indicalo llal llo fIoliIIa parlicipanls on llo M.ti M.rm.r.
voro dividod inlo lvo groups: (i) llo IHH aclivisls and lloir supporlors,
lloso samo parlicipanls vlo soizod llo soIdiors on llo roof of llo M.ti
M.rm.r. and look llom boIov llo slip's dock, vliIo villloIding
approprialo modicaI lroalmonl from llom, and (ii) llo ollor parlicipanls
vlom lloy oncounlorod boIov dock, vlo lriod lo prolocl llom and
improvo lloir silualion.
SoIdior no. 1 slalod aboul llis:
"Al llis slago, I nolicod llal lloro voro lvo lypos of poopIo in
llo room:
1. Torrorisls - vory Iargo and slrong mon, approximaloIy agos 20-
40, armod vill coId voapons,
548
|foolnolo addodj running back
and forll and appoaring as if lloy'ro in llo middIo of a miIilary
oporalion. Somo of llom spoko inlo MoloroIas, lransmillod
roporls villin llo slip and, ollor llan nol laving uniforms,
Iookod and aclod Iiko a miIilary forco in ovory rospocl.
2. Tlo roIalivoIy modoralo poopIo - sIigllIy oIdor mon and
vomon vlo slovod roslrainl, roIalivoIy, and did nol allack mo.
I nolicod llal lloro vas a disagroomonl bolvoon llo lvo groups,
llo lorrorisl group vanlod lo allack mo and kiII mo, vliIo llo
modoralo group lriod lo prolocl mo. Al llis poinl, I vas vorriod
llal somoono from llo lorrorisl group vouId succood in golling
lo mo and slooling or slabbing mo lo doall."
549
545 Soo fiIo "M2U00007" on CD markod as oxlibil 159 of llo Commissions oxlibils, rocoivod
on Doc. 30, 2010. Tlis ovonl from a difforonl poinl of viov is aIso documonlod in anollor
vidoo, soo "M2U00008", |!.
546 IiIo "M2U00011", |!.
547 IiIo "HayaIim" (01:06), |!., Soo aIso "M2U00012" (17 soconds), |!.
548 Tlo lorm "coId-voapon" is dofinod in llo Ivon-Sluslan Diclionary (Conconlralod)
(Hobrov) as a voapon llal can injuro or causo doall by moans of slabbing, or lilling, llus
a voapon llal doos nol lavo maloriaIs llal produco firo or loal as llo rosuIl of llo uso of
gun firo (as opposod lo a "lol voapon").
SoIdior no. 3 aIso slalod:
"Tloro voro lvo groups lloro, llo ono vlicl lriod lo kiII us and
vas jusl vailing for llo momonl vlon lloy vouId succood.
Tloro vas anollor group lloro vlicl lriod lo caIm llings dovn,
and lloy voro acluaIIy llo onos vlo provonlod llo oxlromo
group from kiIIing us."
550
"Il is imporlanl lo nolo llal vlon I vas boIov llo slip's dock
lloy liod mo up, and lloro vas ono vlo puIIod my lair llo
vloIo limo, vlisporod aII sorls of llings in my oar, and boal mo
vill cIubs, and, simuIlanoousIy, lloro vas ono vlo roslrainod
lim llo vloIo limo."
551
Al llis poinl, il slouId bo nolod llal llo clain of command vas
nol fuIIy avaro of llo abduclion of llo llroo IDI soIdiors immodialoIy
upon lloir capluro, bul onIy aflor somo limo lad passod. Tlo maloriaI
oblainod by llo Commission indicalos llal llo aoriaI Iookoul discornod
llo dragging of soIdior no. 1 and lis faII from llo roof lo llo Iovor dock
as llo ovonls look pIaco, and lo roporlod ovor llo radio lis concorn llal
soIdior no. 1 lad boon abduclod by llo IHH aclivisls on llo M.ti M.rm.r..
Tlus, by moans of a radio roporl al 4:39 a.m., llo aoriaI Iookoul roporlod
lis concorn lo llo Commandor of Conlor A, and ovon askod lim lvico
vlollor a soIdior vas missing on llo slip. Tlo Commandor of Conlor
A rospondod llal lo did nol lavo conlacl vill llo forco from loIicoplor
no. 1 and lloroforo lo couId nol rospond.
552
IikoIy, llo Commandor of
Conlor A undorslood llal soIdiors voro missing from llo forco aflor llo
llird loIicoplor arrivod, as doscribod boIov (bolvoon 4:46 a.m., vlon fasl-
roping from llo llird loIicoplor bogan, unliI 5:07 a.m., vlon llo command
vas givon lo board llo M.ti M.rm.r. from llo Morona spoodboals.) Tlo
commandor of llo forco on llo socond loIicoplor (loroaflor: snIdier nn.
21), slalod llal vlon lo roaIizod for llo firsl limo llal soIdiors no. 1, no.
3 and no. 4 voro noar llo bov of llo slip (al approximaloIy 5:13 a.m., as
552 Tlo sounds ovor llo radio rogarding llo absonco of soIdior no. 1 can bo loard on fiIo
"Noslok Ham.mov" in foIdor Air, N.t D.i. Disc, supr. nolo 5. Tlo limo of communicalion
bolvoon llo aoriaI Iook-oul (Tzofil) and llo Slayolol 13 Commandor can bo soon from llo
cIock appoaring on llo visuaI dovico, Soo aIso llo loslimony of Slayolol 13 commandor,
|nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 4, according lo vlicl al llis limo I cannol
oslabIisl radio conlacl vill llo commandors on board llo dock in ordor lo rocoivo a roporl
from llom rogarding llo slalus of llo forco, in rolrospocl il vas bocauso aII six soIdiors or
commandors vlo doscondod firsl from llo loIicoplor voro injurod in ono vay or anollor
and voro in a silualion vloro lloy couId nol laIk lo mo.
doscribod boIov), lo vas surprisod bocauso lo lad nol knovn anylling
aboul soIdiors from llo forco boing missing.
553
On llis issuo, llo Cliof of Slaff, GonoraI Gabi Aslkonazi, loslifiod
boforo llo Commission llal llo soIdiors on llo vossoI and llo commanding
forcos noarby onIy roaIizod llal llo llroo soIdiors voro missing aflor
aboul fifloon minulos.
554
Tlo Cliof of Slaff addod: "Irom our porspoclivo,
il is onliroIy cIoar llal lloro is a Iosson loro, llal vo slouId lavo knovn
aboul llis oarIior."
555
137. 1|c scccn! |c|iccpicr. Tlo soIdiors vlo fasl-ropod from llo firsl
loIicoplor did nol rospond lo llo radio lransmissions diroclod lo llom.
Tloroforo, al llis slago, llo Slayolol 13 commandor ordorod anollor
loIicoplor lo llo M.ti M.rm.r. (loroaflor: the secnnd heIicnpter),
vlicl lad boon dosignalod in llo oporalion's pIan as back-up for llo
firsl loIicoplor. Tloro voro 12 soIdiors on llo socond loIicoplor. Al 4:36
a.m., fasl-roping bogan from llo socond loIicoplor, using lvo rappoIIing
ropos.
556
Tlo commandor of llo forco on llo socond loIicoplor rocoivod a
roporl from llo commandor of llo modicaI loam for llo forco on llo firsl
loIicoplor (loroaflor: snIdier nn. 15) aboul llo condilion of llo voundod
and bogan moving lovards llo forvard parl of llo roof, vloro, according
lo llo soIdiors' doscriplion, llo IHH aclivisls vlo lad allackod llo firsl
loIicoplor's soIdiors voro gallorod. Tlo loam advancod lo llo odgo of llo
roof vliIo soarcling llo IHH aclivisls, and a numbor of soIdiors romainod
in ordor lo socuro llo aroa. Upon roacling llo odgo of llo roof's porcl, llo
commandor of llo forco slalionod a fov soIdiors in posilions conlroIIing
llo roof, and ordorod llom lo guard ovor llo Iovor docks. Ono of llo
soIdiors lriod lo doscond llrougl llo roof's oponing (llo lalcl) in ordor
lo gol lo llo slip's bridgo, bul lo oncounlorod rosislanco. Tlo commandor
docidod lo landcuff llo parlicipanls on llo roof in ordor lo froo addilionaI
soIdiors for llo mission of dosconding lo llo bridgo. Ho slalod: "I roaIizo
il's nocossary lo froo up soIdiors lo oxpand llo loam dosconding boIov
dock, and so vo docidod lo landcuff llo lorrorisls on llo roof. I gavo
554 Transcripl of sossion no. 13 "Tlo Opon Door Toslimony of llo Cliof of Slaff" (Ocl. 24,
2010), al 32-33 |loroinaflor C|ic| c| Si.||s Opcn Dccr 1csiimcn c| 24.10.2010j. Il slouId bo
nolod llal in llo IiIand roporl, il is slalod llal llo forcos voro nol avaro of llo abduclion
of llo soIdiors unliI aflor 43 minulos lad passod, soo 1|c |i|.n! Rcpcri, supra nolo 402, al
106. Il appoars as if llis slalomonl is corrocl vill rospocl lo mosl of llo forco, lovovor, as
monlionod - and llis is probabIy vlal llo Cliof of Slaff roforrod lo in lis loslimony - somo
undorslood llal al Ioasl ono soIdior lad boon abduclod prior lo llal.
555 |!., al 33, Soo aIso 1|c |i|.n! Rcpcri, supr. nolo 402, al 112.
556 Tlo limo of llo dosconls slarl vas oslimalod according lo llo cIock on llo visuaI dovico
(Tzofil), Soo vidoo fiIo "Noslok Ham.mov", in foIdor Air, N.t D.i. Disc, supr. nolo 5.
llo ordor lo landcuff llo lorrorisls vlo voro Iying on llo dock, and I
landcuffod llom vliIo lloy voro Iying on lloir slomacls. I landcuffod
lloir lands bolind lloir backs so llal lloy vouId bo noulraIizod and no
Iongor prosonl a llroal lo llo unil, and il vouId bo possibIo lo roduco llo
numbor of guards socuring llom."
557
Il slouId bo nolod llal al llis slago, llo Commandor of Conlor
A approaclod llo M.ti M.rm.r. in llo Morona spoodboal and lriod
lo lransmil a mossago lo llo soIdiors on llo roof using a mogaplono.
According lo lis loslimony, llo ordor givon lo llo soIdiors on llo roof
vas 'lo movo lo llo bridgo, vliIo using Iivo firo if noodod. I ordorod llo
soIdiors llal in caso lloro is a dangor lo lloir Iivos, lloy slouId slool lo
lil llo aclivisls llal aro ondangoring llo forco, bul for lloso vlo do nol
conslilulo a llroal lo lloir Iivos, slool al llo Iogs.'
558

138. 1|c i|ir! |c|iccpicr. Al llis poinl, llo Slayolol 13 commandor
ordorod llo llird loIicoplor, vlicl lad boon dosignalod lo lako conlroI of
anollor slip (llo Dc|cnc Y), lo aIlor ils doslinalion and fasl-ropo onlo llo
M.ti M.rm.r. lo assisl llo forcos lloro (loroaflor: the third heIicnpter). Al
4:46 a.m., fasl-roping using lvo ropos commoncod from llis loIicoplor, on
vlicl lloro voro 14 soIdiors. Tlo loam socurod llo porimolor of llo roof
and lovard llo Iovor docks,
559
and mado conlacl vill llo commandor of
llo socond loIicoplor, vlo gavo llom an assossmonl of llo silualion. Tlo
commandor of llo forco (loroaflor: snIdier nn. 18) docidod lo advanco
lovards llo bridgo.
560
Il slouId bo nolod llal llis forco vas nol caIibralod
on llo samo radio froquoncy as llo ollor loams, duo lo llo clango in
lloir mission. Tloroforo, soIdior no. 18's conlacl romainod on llo roof
vill inslruclions lo mako conlacl vill llo Commandor of Conlor A or
llo commandor of llo oporalion, and roporl aboul llo condilion of llo
voundod. A smaII loam romainod lo socuro llo roof noar llo oponing lo
dovn boIov. Tlo ordor givon lo llis loam vas lo slool lovard llo slip's
body (inlo llo cIoar aroa) lo dolor llo aclivisls and, in llo ovonl of any
dangor lo llo forcos, lo slool al llo llroal.
557 Soo llo loslimony of soIdior no. 21, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 3, Il
slouId bo omplasizod loro llal vo aro doaIing vill llo lakoovor slago oxcIusivoIy.
558 Soo loslimony of llo Commandor of Conlor A, |!., al 2, Al llo samo limo, in llo compIolion
rosponso on llis mallor llo Commandor of Conlor A monlionod llal in lis oslimalion
lloso caIIs voro nol loard by llo soIdiors on board llo slip, sinco lloy did nol approvo or
in any vay acknovIodgo llal lloy lad rocoivod llo ordor (soo |DI Ccmp|ciicn Rcspcnsc ic
i|c Ccmmissicns Qucsiicns c| 29.11.2010, al para. 6, markod by llo Commission as oxlibil
147).
559 Soo loslimony of soIdior no.18, |!., al 1, Tlo roforonco is lo a soclor froo of poopIo and for
purposos of dolormonl and provonlion of llo advancomonl of poopIo lovards llo soclor.
Tlo Takoovor of llo Bridgo
139. SoIdior no. 18, commandor of llo lakoovor forco on llo llird
loIicoplor, mobiIizod lis forco and bogan proparing for llo dosconl.
During llo dosconl, a door on llo body of llo slip oponod al a dislanco
of approximaloIy lvo molors from llo forco, and lvo aclivisls camo oul.
According lo llo forco commandor's slalomonl, lloy voro armod vill
cIubs and axos. Tlo forco slol Iivo firo al ono of llom, lo vas voundod,
and llo socond IHH aclivisl draggod lim back insido and cIosod llo
door. SoIdior no. 18 slol sovoraI rounds llrougl llo vindov of llis
door, lovard llo slip's innor vaII. On lloir vay lo llo bridgo, llo forco
idonlifiod lvo moro IHH aclivisls vill cIubs. Ono of llo soIdiors in llo
forco slol llo lvo IHH aclivisls in llo Iogs. Upon roacling llo aroa of llo
bridgo, soIdior no. 18 gavo llo ordor lo onlor vliIo firing, and aIso slol
a numbor of Iivo buIIols inlo llo aroa cIoar of poopIo. Tlo forco clargod
onlo llo bridgo, vloro lloro voro fivo poopIo in addilion lo llo caplain
of llo M.ti M.rm.r.. Tloso vlo voro prosonl on llo bridgo did nol
provido rosislanco lo llo lakoovor of llo bridgo, aIllougl, from an innor
corridor of llo vossoI, marbIos and scrovs voro slol al llo IDI soIdiors
from a sIingslol. SoIdior no. 18, llo forco commandor, gavo llo ordor lo
slool inlo llo innor corridor, and if llo slooling conlinuod, al llo Iogs
of parlicipanls loIding sIingslols. Tlis ovonl is aIso doscribod in furllor
dolaiI boIov.
SoIdior no. 18 ordorod llo caplain of llo M.ti M.rm.r. lo slop llo
vossoI. Ivoryono on llo bridgo, ollor llan llo caplain, vas landcuffod.
561

Tlo caplain issuod an announcomonl ovor llo vossoIs' pubIic
announcomonl syslom llal llo slip vas no Iongor undor lis conlroI, bul
vas insload undor llo conlroI of IDI soIdiors, and lo ordorod aII of llo
passongors lo go insido llo slip.
Boarding by llo SoIdiors from llo Morona Spoodboals
140. WliIo lloso ovonls voro laking pIaco on llo M.ti M.rm.r. ilsoIf,
llo navaI forco conlinuod lrying lo board llo slip. Irom ils Iocalion al soa,
561 SoIdior no. 9 loslifiod llal during llo lakoovor of llo bridgo lloy inslruclod llo caplain
of llo Marmara lo slop llo slip and llo Iallor slarlod laIking in Turkisl on lis inlornaI
radio, SoIdior no. 9 vonl on lo slalo in lis loslimony llal lo found oul llal llo caplain
gavo an ordor lo sabolago llo slip. In facl, lloro vas indood a loclnicaI maIfunclion on
llo slip vlicl vas idonlifiod by a Navy Inginoor Officor as a doIiboralo maIfunclion.
Soo loslimony of soIdior no. 9, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 2, Soo aIso
|DI ccmp|ciicn rcspcnsc c| 15.11.2010, supr. nolo 400, Toslimony of Cliof |Inginoor Officorj
of llo Bal Yam |Navy slipj, |!, SoIdior no. 9 aIso monlionod llal llo caplain, vlo vas
voaring a KovIar vosl, romainod al llo slips vlooI and bogan cursing llo soIdiors and
domanding lloy gol off llo slip.
llo forco couId soo somo of llo ovonls laking pIaco on llo M.ti M.rm.r.,
bul vill onIy a parliaI viov duo lo ils Iocalion. Al a corlain slago, llo
navaI forco on llo Morona spoodboals ovon sav a porson llrovn from
llo roof onlo llo Iovor docks.
562
Allompls lo oslabIisl conlacl vill llo
soIdiors on llo roof of llo M.ti M.rm.r. faiIod. Boforo llo arrivaI of
llo llird loIicoplor, and aflor rocoiving llo radio roporl llal lloro voro
lvo injurod on llo roof, llo Commandor of Conlor A inslruclod llo firsl
Morona spoodboal lo approacl llo bov. Tlo forco oncounlorod rosislanco
from valor losos, poIos, gIass marbIos, olc., and anollor allompl lo raiso
llo Iaddors in ordor lo cIimb aboard faiIod.
563
Tlo Commandor of Conlor
A docidod nol lo approvo Iivo firo al llis slago, and lo vail for llo llird
loIicoplor lo slabiIizo llo silualion and cIoar llo sido. Tlo Commandor of
llo Takoovor Iorco on llo socond Morona slalod llal lo loard slooling
on llo roof and roquoslod pormission from llo Slayolol 13 commandor
lo opon Iivo firo. Tlo Slayolol 13 commandor rofusod lo givo approvaI
for slooling "in ordor lo provonl doalls among llo parlicipanls of llo
fIoliIIa."
564
AddilionaI allompls lo oslabIisl conlacl vill llo forco on llo roof
faiIod (as slalod abovo, llo Commandor of Conlor A, vlo vas aboard
llo firsl Morona, lriod caIIing lo llo soIdiors vill a mogaplono). Tlo
Commandor of llo Takoovor Iorco sav slooling al llo navy's boals, bul
lo couId nol idonlify llo sourco of llo slooling and lo did nol rolurn firo.
565

Tlo loam commandor R., vlo vas on llo firsl Morona aIong vill llo
Commandor of Conlor A, aIso sav slooling al llo Morona, vlicl slruck
llo valor noar llo Morona.
566
Al llis slago, llo namos of llo voundod
voro lransmillod by radio, and llo firsl unil commandor roaIizod llal a
soIdior from llo firsl loIicoplor vas missing.
Al 5:07 a.m., llo Commandor of Conlor A gavo llo ordor for llo
soIdiors on boll Morona spoodboals lo board llo M.ti M.rm.r..
567
Tlo
Commandor of Conlor A issuod an ordor lo uso dolorring firo againsl llo
sido of llo slip in ordor lo dolor llo group of IHH aclivisls slanding lloro.
According lo lis slalomonl, llo dolorring firo did nol lavo llo anlicipalod
offocl. Tloroforo, llo forcos usod Iivo firo lovards lvo of llo IHH aclivisls
562 Soo loslimony of soIdior no. 20, al 2, as voII as llo loslimony of llo commandor of conlor
A, al 1, |!.
563 |!.
564 Soo loslimony of llo Commandor of llo Takoovor Iorco, |!., al 4.
565 |!.
566 Soo loslimony of llo Toam Commandor R, |!., al 1.
567 Soo loslimony of llo Commandor of Conlor A, |!., al 1-2, soo vidoo fiIo "Noslok Ham.
mov", in foIdor AirN.t D.i. Disc, supr. nolo 5.
vlo voro llroving various objocls lovards llom.
568
Tlo soIdiors on llo
socond Morona boardod on llo rigll sido, villoul ongaging in any Iivo
firo.
569
Tlo slooling Iod lo llo disporsaI of llo poopIo al llo vossoI's slorn.
Tlo forcos from boll Morona spoodboals boardod llo M.ti
M.rm.r.. Tlo Commandor of Conlor A diroclod llo Commandor of llo
Takoovor Iorco lo socuro llo oponings, roaIizod llal llo lakoovor of llo
bridgo lad boon compIolod, and vonl up lo llo roof lo assoss llo silualion
of llo forcos vlicl voro lloro. Tlo assossmonl lo oblainod vas llal llo
unil lad lvo voundod and lvo soIdiors missing.
570
Tlo forco proparod
lo doscond lo llo laIIs lo Iocalo llo missing soIdiors. Al llis slago, and
aflor llo roporl by llo slip's caplain ovor llo Ioudspoakor syslom llal llo
vossoI vas undor llo conlroI of IDI soIdiors, a roporl vas rocoivod aboul
llo ovonls laking pIaco al llo bov -- llo llroo soIdiors vlo lad boon
abduclod voro brougll oul and lakon lo llo bov. SoIdior no. 3 doscribod
in lis slalomonl llal slooling vas loard al llis limo.
571
SoIdior no. 21, llo
forco commandor of llo socond loIicoplor, doscribod in lis slalomonl llal
lloro vas slooling from Ioss-IollaI voapons al llo vioIonl aclivisls vlo
voro loIding soIdiors no. 1, no. 3, and no. 4.
572
Tvo of llo soIdiors, soIdior
no. 1 and soIdior no. 3, look advanlago of llo opporlunily, jumpod inlo
llo valor, and voro pickod up by llo navy's firsl Morona spoodboal from
lloro lloy voro lransporlod lo llo INS Hanil missiIo slip.
573
SoIdior no. 4,
vlo lad a sorious load injury, romainod on llo bov. Tlo Commandor of
Conlor A and soIdior no. 21 roaclod soIdior no. 4, conduclod a proIiminary
modicaI oxaminalion, and llo Commandor of Conlor A gavo llo ordor lo
ovacualo lim lo llo roof.
Rogarding llo ovonls vlicl look pIaco al llal limo, soIdior no. 1
slalod:
568 Soo llo loslimony of Commandor of Conlor A, |nuir |xp.nsicn c| 20.9.2010, supr. nolo
451, al 2, Soo aIso llo loslimony of Commandor of Conlor A, |DI Ccmp|ciicn Rcspcnsc c|
.11.2010, supr. nolo 486, al 2.
569 Soo llo loslimony of Commandor of Conlor A, al 2, as voII as llo loslimony of llo
commandor of llo lakoovor forco, al 4, |!.
Vidoo fiIo "VIDIO_100530_003.asf", in foIdor c!11 in foIdor sc., N.t D.i. Disc, supr. nolo
5. Tloro is anollor vidoo lakon by llo IDI forcos, vloro llo galloring of rosislors al llo
slorn vas documonlod, lloir scalloring al ono momonl (llo slooling from llo diroclion
of NSW boal 1 vas nol soon), and llo asconl of llo soIdiors from llo NSW boal lo llo
Marmara, Soo: CD 5 1.|cctcr c| i|c M.ti M.rm.r., in a foIdor markod as oxlibil 90 by llo
Commission.
570 Soo llo loslimony of Commandor of Conlor A, |nuir |xp.nsicn c| 20.9.2010, supr. nolo
451, al 2.
"Aflor somo limo, llo slip's caplain vas loard saying ovor llo
Ioudspoakor syslom llal llo slip vas nov undor llo conlroI of
llo soIdiors, and llal lloy aro using Iivo voapons, and llal aII
passongors slouId go boIov dock. Tlis announcomonl causod a
Iol of agilalion boIov dock, and llo mob bogan slouling "AIIalu
Akbar" and bogan lo incilo oacl ollor. Aflorvards, lloy brougll
us and sal us dovn againsl llo bov of llo slip. Al llis poinl, I
sav llal soIdior no. 4 vas nol vaIking on lis ovn, bul insload
vas boing draggod. Tvo poopIo voro aIso dragging mo. Al llis
slago, I llougll lloy voro going lo oxoculo us al llo bov of llo
slip, as an acl vloso purposo from lloir porspoclivo vas lo
oxoculo ono soIdior (mo) and lo llroalon llal lloy vouId do llis
lo llo ollor lvo if lloy voron'l pormillod lo onlor Gaza.
Aflor aboul lon soconds, lloy oponod llo door and brougll mo
oul lovards llo bov. Tlo guard bringing mo oul loId mo a IillIo
Ioss ligllIy, and lo vas vaving vill lis land lo llo rigll and lo
llo Iofl in llo diroclion of our boals, vlicl I undorslood vas lo
slov our forcos llal lloy voro loIding soIdiors in lloir cuslody.
I look advanlago of llo opporlunily llal lo vas loIding mo vill
onIy ono land, and roIalivoIy IoosoIy. I jabbod my oIbov inlo
lis ribs and jumpod inlo llo valor. WliIo I vas lrying lo jump,
llo guard lriod lo grab mo, bul I managod lo froo mysoIf and
I foII inlo llo valor. I did llis bocauso I roaIizod llal llis vas
llo onIy vay lo savo my Iifo. As soon as I roaclod llo valor, I
dovo undornoall, so llal lloy vouId nol bo abIo lo lil mo from
llo slip. I look off my slirl vliIo diving and svimming, and I
inlondod lo svim and divo rapidIy in a "zig zag" lo oscapo from
llo onomy on llo slip. Aflor my firsl divo, I roso lo llo valor's
surfaco and I sav a Morona spoodboal approacling mo and
soIdior no. 3 noxl lo mo, sinco lo lad aIso jumpod from llo slip,
aflor mo. Tlo Morona arrivod. Wo voron'l abIo lo cIimb aboard
il on our ovn, and vo voro puIIod up by llo mombors of our
forco. Tlo modic on llo Morona bogan lroaling soIdior no. 3. I
Iookod back al llo vossoI and I sav soIdior no. 4 Ioaning on llo
sido of llo slip, compIoloIy dazod / somi-conscious. I pickod up
an M-16 rifIo llal vas in llo Morona and I bogan slooling in llo
air inlo llo cIoar aroa, and llis vas bocauso I vas concornod llal
llo mob on llo slip vanlod lo abducl soIdior no. 4 back inlo llo
slip, and I vanlod lo dolor llom.
I sloulod lo soIdior no. 4 llal lo slouId jump inlo llo valor,
bul al llis poinl I sav sovoraI soIdiors from our forcos voro
joining up vill soIdior no. 4. Aflorvards, I Ioarnod llal soIdior
no. 4 sufforod from a fraclurod skuII and comprossion, and llal
llo oporalion vlicl llo unil paramodic porformod on llo dock
of llo M.ti M.rm.r. savod lis Iifo. Aflorvards, llo Morona
lransporlod soIdior no. 3 and mo lo llo INS Hanil missiIo slip.
As llo Morona spoodboal movod lovard llo missiIo slip, vo
passod by llo commandor on llo Zalaron boal and I sloulod
lo lim llal llo lorrorisls lad possossion of llo oquipmonl and
voapons of llo llroo of us (soIdior no. 3, soIdior no. 4, and mo).
574
"Wo Iay lloro for vlal soomod lo mo somolling Iiko an lour and
a laIf (in lindsigll I knov llal from llo momonl vo fasl-ropod
unliI I gol oulsido, 43 minulos passod)....
Tlo slouling conlinuos llo vloIo limo, lloro is a Iol of noiso,
many poopIo aro invoIvod vill us and slouling al us. Al a
corlain slago, llo announcomonl of llo slip's caplain is loard.
Tlo caplain slouls lo ovoryono lo go insido aII of llo rooms. Aflor
llo caplain's announcomonl, a Iol of slross and panic is croalod.
Tloro aro poopIo around us vlo aro slouling and cursing llo
vloIo limo, as I slalod. Tlo poopIo aro Iooking oul llo vindovs
llo vloIo limo.
Al llo noxl slago, my guard is ropIacod by anollor guard. Tlo
nov guard Iifls mo up. I ask lim lo undo llo lios al my lands
and Iogs. Ho roIoasos llo lios (llo ropo) for mo, and lo bogins
laking mo lo llo bov, vill llo dislanco bolvoon us and llo oxil
lo llo bov aboul 50-70 molors.
Tlo movo lovard llo bov is dono llrougl llo laII. WliIo vo'ro
moving, llo guard is lrying lo slrangIo mo. Ivory limo I fooI llal
I don'l lavo any air, I lry lo sloul and poopIo roIoaso mo from
lim, and lloy don'l aIIov lim lo succood in slrangIing mo.
Tlis allompl lo slrangIo mo vas mado sovoraI limos. Il is
imporlanl lo slalo llal lloy brougll soIdior no. 4 boforo mo, lvo
poopIo grabbod lim on oacl sido. Ho couIdn'l vaIk. Tloy jusl
draggod lim aIong and Iay lim dovn on a coucl by llo door
vlicl oxilod onlo llo bov. Tloy sal mo dovn noxl lo lim and,
vliIo lloy'ro silling lim up, I soo llal somoono is laking soIdior
no 1 oulsido. I riso up forcofuIIy lo lry and go oulsido aIong vill
llom, and I find mysoIf oulsido vill soIdior no. 1.
I find mysoIf oulsido logollor vill soIdior no. 1 and llo "Turkisl
guard". I loar slooling, I lurn around and I soo llo "Turkisl
guard" fIooing back insido.
SoIdior no. 1 and I run lo llo sido of llo slip, jump inlo llo valor
from a loigll of 12 molors, and slarl svimming lovard our boals,
lovard llo Morona spoodboals. Wo cIimb aboard llo Morona,
vloro lloy slarl lroaling mo, and from lloro lloy lransfor mo lo
llo missiIo boal, and from lloro by loIicoplor lo llo lospilaI."
575
SoIdior no. 20, vlo vas on ono of llo Morona spoodboals vlicl
pickod up soIdiors no. 1 and no. 3, vlo lad jumpod inlo llo valor, slalod:
"Al llis slago, vo approaclod llo rigll sido of llo M.ti M.rm.r.
(llo back llird) and, vliIo vo'ro approacling, I soo lvo poopIo
jumping inlo llo valor (lvo figuros) from llo rigll sido of llo
bov. Il vas aIroady dayIigll. To llo bosl of my rocoIIoclion, llo
M.ti M.rm.r. vas no Iongor moving.
Wo didn'l knov vlo llo lvo figuros voro vlo lad jumpod, and
vo approaclod vill our voapons roady and idonlifiod soIdior
no. 1 and soIdior no. 3.
SoIdior no. 1 svam lovards us rapidIy. Ho roaclod us, and vo
sav lim, and llal lis vloIo faco vas svoIIon and boalon and lis
load vas opon and lis land vas aIso injurod.
Wo sav llal soIdior no. 3 vas svimming vill difficuIly. Wo
Iookod al lim. Ho said llal lis abdomon vas cul and llal lo
can'l cIimb.
Wo Iiflod lim inlo our boal. Wo sav llal lis arms voro fuII of
culs, lis faco vas svoIIon from bIovs and smasling, and lo lad
an opon sIasl in lis abdomon from vlicl lis inlornaI organs
voro prolruding. Ho Iookod Iiko lo vas in crilicaI condilion.
Al llo samo limo, vo Iookod al llo pIaco vloro lloy lad jumpod
from, and vo sav soIdior no. 4 Ioaning on llo sido of llo M.ti
M.rm.r., vill lis oyos opon. Wo caIIod lo lim and lo didn'l
roacl. Wo roaIizod llal lo vas crilicaIIy voundod.
Al llis slago, llo boal of llo navaI command approaclod us and
lo loId us llal lo vouId conlinuo doaIing vill (laking caro of)
roscuing soIdior no. 4 and llal vo slouId ovacualo llo voundod."
SoIdior no 21 llo commandor of llo forco on llo socond loIicoplor,
slalod as foIIovs aboul llo slooling vill Ioss-IollaI voapons, vlicl
onabIod llo oscapo of soIdiors no. 1 and no. 3, and aIso aboul llo silualion
of soIdior no. 4:
"I vas slalionod al llo Iofl sido of llo roof, and suddonIy I loard
slouls from llo rigll parl of llo roof: "Tloy'ro laking soIdiors no.
1 and no. 3 vill llom". Al llis poinl, dayIigll broko.
Wo ompIoyod llo slooling of Ioss-IollaI voapons al lloso vlo
lad abduclod llom, by llo soIdiors vlo sav llo ovonl, and
immodialoIy aflorvards I loard a sloul: "Tloy jumpod inlo llo
valor." I roacl llo rigll sido of llo roof and I soo soIdior no. 4
Ioaning on llo raiIing of llo slip on llo rigll sido of llo opon
dock (llo Iovor dock). I can'l loII llal lo is voundod, bul I soo
llal lo is onIy in uniform villoul any oquipmonl. I vas in slock,
I kopl my oyo on lim, I didn'l knov llal soIdiors from our unil
voro missing.
I roaIizo llal apparonlIy nol aII of llo docks lad boon soarclod
yol, and nov I'm on llo bridgo dock, ono IovoI boIov, and lo is
llroo IovoIs boIov us, and I sloul lo lim lo jump inlo llo valor.
I soo llal lo doosn'l roacl, lo Iooks dazod, bul lo doosn'l roacl
al aII. Al llis slago my socond-in-command and I jump dovn
in ordor lo gol lo lim. Aflor vo lavo gono dovn ono IovoI, I
roaclod llo socond IovoI, and lloro I soo llal llo corridor is fuII
of poopIo. I Ioavo my socond-in-command, and I go dovn llo
slairs lo llo opon dock and approacl soIdior no. 4.
I immodialoIy roaIizo llal lo is nol conscious. I soo signs of
lrauma lo lis faco. I movo lim avay from llo sido, Iay lim
dovn on llo dock, and, al llis poinl, llo commandor of llo forco
arrivos, logollor vill lis signaI oporalor. Ho asks lim if lloy
slol lim and if ovorylling is okay. Aflorvards, I pick lim up
and lako lim up lo llo lroalmonl silo for llo voundod, vloro I
mol llo paramodic, vlo inslruclod mo lo Iay lim dovn."
576
Taking Caro of llo Woundod
141. Tlo soIdiors' slalomonls indicalo llal llo soIdiors lroalod llo
voundod llrougloul llo vloIo oporalion.
577
Aflor llo lakoovor of llo
vossoI vas compIolod, al around 5:17 a.m.,
578
llo slago of lroaling and
ovacualing llo voundod in a moro organizod mannor commoncod. Tlo
slalomonls of llo modicaI loam indicalo llal llo priorilizalion for lroaling
llo voundod vas basod on objoclivo modicaI criloria, sucl llal somo
IDI voundod onIy rocoivod lroalmonl aflor llo lroalmonl of voundod
fIoliIIa parlicipanls.
579
Tloro voro aboul 15 voundod IHH aclivisls on
577 Soo for oxampIo llo loslimony of soIdior no. 7, al 3 (I slarlod lroaling aboul 15 voundod
among llo poopIo vlo allackod us oarIior), loslimony of soIdior no. 15, al 4 (llo doclors
porformod oporalions on llom |llo roforonco is lo llo aclivisls on board llo slip vlo
allackod usj. Tlis Iaslod for 4 lours vlon lloy lroalod aII llo voundod on llo slip),
Toslimony of Commandor of Conlor A, al 3, In llo loslimony llo commandor doscribos
rocoiving ongoing roporls from llo unil doclor lroaling llo voundod, and llal ovory
voundod porson - incIuding llo fIoliIIa aclivisls - rocoivod fuII modicaI lroalmonl, 669
Unil Commandors loslimony, al 2, vlicl doscribos llal vlon lo roaclod llo Marmara lo
nolicod llal llo voundod lad aIroady rocoivod firsl aid and assumod il vas adminislorod
by llo Slayolol soIdiors, Soo aIso llo loslimony of llo Commandor of llo Takoovor Iorco,
al 7, Toslimony of soIdior no. 6, al 4-5, Toslimony of soIdior no. 10, al 2, As voII as llo
loslimony of soIdior no. 13, al 5, |!.
579 Soo llo loslimony of llo 669 Commandor, |DI ccmp|ciicn rcspcnsc c| 15.11.2010, supr. nolo
llo roof
580
and oigll voundod IDI soIdiors, of vlom llroo lad crilicaI
injurios.
581
Tlo doclor vlo boardod vill llo forco from llo socond
Morona spoodboal slalod llal lo landIod llo ovacualion of a numbor of
IDI soIdiors vlo voro crilicaIIy voundod, and lo loslifiod lo llo crilicaI
condilion of lloso voundod.
582
Al llis slago, llo forcos roaIizod llal somo
of llo fIoliIIa parlicipanls in llo laIIs of llo vossoI voro voundod, and
llus an ordor vas givon lo firsl bring aII of llo voundod oul llrougl
llo onlrancovays of llo laIIs. A doclor, a modic, and a modicaI loam
voro slalionod al oacl of llo onlrancovays and conduclod llo firsl
oxaminalion of llo voundod. Irom lloro, llo voundod voro lakon up lo
llo roof. Al any givon limo, lloro voro aboul six or sovon doclors on llo
roof (incIuding llo diroclor of an omorgoncy room al Rambam HospilaI).
Iroviding modicaI lroalmonl on llo roof voro aIso six paramodics, four
modicaI loams and llo soIdiors from llo roscuo and airIifl ovacualion
unil 669 (loroaflor: unit 669), aII of vlom aro lrainod modics. During llo
courso of llis ovonl, lroalmonl vas providod by in lolaI 18 doclors, six
paramodics, aboul 70 soIdior-modics and a sonior doclor from unil 669,
vlo assislod vill llo priorilizalion for ovacualing llo voundod. Tlo
commandor of unil 669 slalod llal, upon lis command, llo doclors bogan
slabiIizing llo condilion of llo voundod. Tloso voundod vlo voro in
slabIo condilion voro larnossod inlo ovacualion slrolclors, proparod for
loIicoplor ovacualion, and lransforrod lo llo loIicoplors. Iourloon fioId
oporalions voro porformod on llo dock of llo M.ti M.rm.r.. By 11:40
a.m., 31 voundod fIoliIIa parlicipanls lad boon ovacualod, 20 of vlom
voro in crilicaI condilion and llo rosl modoraloIy or IigllIy injurod.
Tlo doclor slalod llal, around 12:00, lo porsonaIIy conduclod a soarcl
insido llo slip, during vlicl lo idonlifiod limsoIf as a doclor and askod
vlollor lloro voro any moro voundod. Tlo doclor aIso slalod llal lis
assislanl lad conduclod a simiIar soarcl sovoraI minulos boforo lim. Al
llis slago, llo modicaI loam boIiovod llal lloro voro no moro voundod
aboard llo vossoI.
583
RolrospoclivoIy, il vas undorslood llal lloro voro
400, al para. I, Soo aIso llo loslimony of soIdior no. 9, al 4 (my lroalmonl vas porformod
aflor llo Turkisl injurod voro lroalod).
580 Soo doclors loslimony, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 2.
581 Soo aIso 1|c |i|.n! Rcpcri, supr. nolo 402, al 107.
582 Soo doclors loslimony, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 2. Il slouId bo
monlionod llal llo doclor loslifiod llal aflor ovacualing aII llo voundod of our forcos
vo bogin lroaling llo voundod among llo aclivisls on llo roof (lis loslimony, al 2).
Hovovor, from ollor loslimonios il sooms llal llo modicaI lroalmonl vas porformod
according lo objoclivo modicaI criloria.
583 Soo doclors loslimony, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 3, Soo aIso llo
loslimony of llo 669 Commandor, |DI ccmp|ciicn rcspcnsc c| 15.11.2010, supr. nolo 400, al
para. I.
an addilionaI 14 passongors in llo laII vlo lad buIIol vounds. Tloso
vounds voro discovorod during llo plysician's oxaminalion vlicl vas
conduclod al llo porl of Asldod.
142. Tlo slalomonls of llo modicaI carogivors indicalo llal somo of
lloso injurod rosislod rocoiving modicaI lroalmonl. Tlo doclor slalod:
"During llis ovonl, lloro voro incidonls of rosislanco lo modicaI
lroalmonl in llo middIo of lroalmonl, vlicl I lad novor
oncounlorod during any ollor ovonl. WliIo porforming a closl
drain (lloracoslomy), llo voundod puIIod llo drain oul limsoIf,
and loIIs mo: "I vanl lo dio Iiko a s|.|cc!." (NB: Tlo lorm "s|.|cc!"
is a vord in Arabic vloso IiloraI moaning is "vilnoss" bul is aIso
usod lo rofor lo a "marlyr.") |oxpIanalion addodj NonolloIoss, vo
insislod on lroaling lim and loisling lim up lo llo loIicoplor for
lroalmonl.
Tloro voro many ollor incidonls Iiko llal, incIuding puIIing oul
inlravonous infusions, olc."
584
Tlo doclor furllor nolod llal nol ono of llo voundod diod of lis
injurios from llo momonl llal llo modicaI lroalmonl bogan, dospilo llo
rosislanco lloy oncounlorod during llo lroalmonl and llo compIicalod
condilions undor vlicl llo lroalmonl look pIaco, incIuding a Iack of
corlain modicaI oquipmonl (and oquipmonl llal fIov inlo llo air duo lo
llo molion of llo loIicoplors), llo difficuIly in lransporling llo voundod
llrougl llo narrov corridors of llo vossoI and from llo Iovor docks
lo llo roof, and llo Iack of a compIolo picluro rogarding llo numbor
of voundod.
585
Il is aIso nolod llal llo Slayolol 13 soIdiors on llo
lakoovor loams look parl in lroaling and ovacualing llo voundod fIoliIIa
parlicipanls. Tlus, for oxampIo, soIdior no. 14 slalod: "Al llo silo for
lroalmonl of llo voundod, I porformod arlificiaI rospiralion on ono of llo
onomy vlo vas voundod, and I pul a lourniquol onlo llo Iog of anollor
vlo lad a buIIol vound in lis Iog."
586
SoIdior no. 15 slalod: "I porformod
arlificiaI rospiralion on anollor lvo mombors of llo slip's crov (llo
"aclivisls") vlo voro voundod, unliI llo paramodic vas avaiIabIo lo lroal
llom, and aflorvards lloy voro ovacualod by loIicoplor. Tlo doclor, llo
modics and llo paramodics vorkod for lours and vonl from ono lo llo
noxl, lroaling llom, insorling inlravonous infusions, porforming arlificiaI
rospiralion, and porforming oporalions on aII of llo voundod vlo voro
on llo roof, and llon somo of llom voro ovacualod by loIicoplor lo llo
lospilaIs. I ovon sav an incidonl in vlicl ono of llo modics lroalod a
584 Soo llo doclors loslimony, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 2.
585 |!., al 2-3.
voundod and porformod arlificiaI rospiralion on lim, and llon vlon lo
bocamo conscious again, lo lriod lo gol up and allack lim."
587

ApparonlIy, aIroady al llis slago llo landcuffs voro romovod from
somo of llo fIoliIIa parlicipanls vlo lad boon landcuffod during llo
lakoovor.
588
Il slouId bo nolod llal lloso voundod vlo romainod boIov dock
aIso rocoivod modicaI lroalmonl, somo againsl lloir viII. Tlo Commandor
of llo Takoovor Iorco slalod:
"AII of llo poopIo sIovIy oxilod llo laIIs, ollor llan llo Knossol
minislor and a numbor of aclivisls vlo voro nol viIIing lo Ioavo,
and in addilion lo lloso nol viIIing lo Ioavo voro lloso voundod
vlo didn'l agroo lo bo ovacualod. Al a corlain poinl, I ask llo
aclivisls insido llo vossoI vlollor lloro is any modicaI porsonnoI
insido, and I ask llom lo connocl us. |...j
Aflor I askod llo aclivisls, lloir doclor approaclos mo, and I ask
lim aboul llo condilion of llo voundod. Ho loIIs mo llal lloro
aro a considorabIo numbor of voundod vlo aro nol viIIing lo
bo ovacualod, somo of vlom aro crilicaIIy voundod and ollor
aclivisls aro nol Iolling llom bo ovacualod. I lako llo docision llal,
dospilo llo dangor lo my poopIo aboard llo vossoI, I'm onloring
llo laIIs lo soarcl for llo voapons vlicl lad boon lakon from
us and lo ovacualo llo voundod from llo vossoI, dospilo lloir
Iack of dosiro lo bo ovacualod, in ordor lo savo lloir Iivos. Wo
onlor llo laIIs and bogin soarcling, informing llo aclivisls llal
vo'ro onloring in ordor lo ovacualo llo voundod. Al llis slago,
vo oncounlor rosislanco: llo Knossol mombor and ollor aclivisls
bIock us vill lloir bodios and lry lo provonl us from golling lo
llo voundod. Wo movo llom asido using our lands, villoul
lilling, jusl moving llom asido, and vo roacl llo voundod vlo
aro Iying on llo couclos - vo bring our doclor and slarl lroaling
and ovacualing llo voundod. During llo ovacualion of llo
voundod, vo conducl a soarcl and Iook for voapons |...j.
589
587 Soo loslimony of soIdior no. 15, |!., al 5, soo aIso llo loslimony of soIdior no. 13, |!., al 5.
588 On llis mallor soo for oxampIo loslimony of soIdior 21, al 3-4, and loslimony of soIdior no.
12, al 4-5, |!.
589 Soo loslimony of llo Commandor of llo Takoovor forco, |!., al 6-7.
Ivacualion of llo Bodios
143. According lo llo soIdiors' slalomonls, llo bodios voro coIIoclod
al a corlain Iocalion on llo roof,
590
covorod,
591
lransforrod lo llo Morona
spoodboals, and llon pul aboard llo navy's missiIo boal and lransporlod
soparaloIy lo llo porl of Haifa.
Tlo Slayolol 13 commandor slalod aboul llis:
"Wo covorod llo doad in a rospoclfuI mannor, on llo sido |...j
Wo covorod llo doad and lransforrod llom lo llo Morona
spoodboals in a concoaIod mannor, in ordor lo avoid causing
unnocossary fIak, and aIso oul of rospocl for llom. Tloy voro
lransforrod from llo Morona spoodboals lo llo missiIo boal,
vlicl brougll llom lo llo baso in Haifa.
592
Taking ConlroI of llo HaIIs
144. WliIo llo voundod voro boing lroalod and llo doad voro boing
ovacualod, llo M.ti M.rm.r. vas boardod by llo "Masada" unil of llo
IsraoI Irison Sorvico (llo "Masada" unil is llo oporalionaI conlroI unil
of llo Irison Sorvico, dopIoyod in prison faciIilios undor llo Irison
Sorvico's aullorily, and il is an oporalionaIIy-roady forco in ils aroas of
spociaIizalion, vlicl incIudo landIing sorious vioIalions of pubIic ordor
llrougl llo uso of Ioss-IollaI voapons), aIso, a forco from llo spociaI
palroI unil of llo Bordor IalroI, vlicl incIudod 51 maIo poIico officors
and lvo fomaIo poIico officors, boardod llo M.ti M.rm.r..
593
Aflor llo
voundod lad Iofl llo laIIs, llo IDI soIdiors ordorod aII of llo fIoliIIa
parlicipanls lo Ioavo llo laIIs. Al llis slago, llo parlicipanls voro clockod
in ordor lo onsuro llal lloy did nol possoss any voapons. According
lo llo soIdiors' slalomonls, llo clocks of llo parlicipanls voro dono
according lo guidoIinos (i.o., soarclos of vomon's bodios voro conduclod
onIy by fomaIo poIico officors),
594
and llal "llo soarclos voro conduclod
590 Soo for oxampIo llo doclors loslimony, |!., al 2: on llo roof I found aboul 20 aclivisls
Iying dovn, of llom fivo kiIIod and 15 injurod, vo gallorod llo voundod and llo doad
soparaloIy, as voII as loslimony of soIdior no. 13, |!.: soIdior no. 18 askod mo lo organizo
and soparalo llo bodios of llo lorrorisls from llo voundod |.j soIdior no. 14 and I
coIIoclod llo bodios (aboul 5 bodios)".
591 Soo llo Commandor of llo Takoovor Iorcos loslimony, |!., al 7, according lo vlicl llo
bodios voro covorod in sIooping bags found on llo slip.
592 Soo loslimony of Slayolol 13 commandor, |!., al 6.
593 A roducod forco from llo Masada unil boardod llo Marmara al aboul 05:10, aflor llo
figlling on board llo Marmara vas finislod. Tlo main forco boardod llo Marmara al
aboul 05:38.
594 Soo for oxampIo llo loslimony of soIdior no. 14, |!., al 3.
vill rospocl, villoul undrossing llo poopIo and vliIo prolocling lloir
dignily."
595

Tlo maloriaI in llo Commission's possossion indicalos llal somo
of llo fIoliIIa parlicipanls voro landcuffod, mainIy young mon vlo llo
forcos voro concornod vouId lry lo allack llom or lo causo a dislurbanco.
Tlo Slayolol 13 commandor slalod llal lo lad inslruclod llo soIdiors
as foIIovs: "Tlo soIdiors voro inslruclod lo landcuff poopIo vlo voro
acling viId or consliluling a dangor or llroal lo llo soIdiors, and lloy
voro inslruclod llal lloy slouId nol landcuff vomon, cliIdron, or llo
oIdorIy, and llis is vlal vas dono."
596
SoIdior no. 15 aIso slalod: "Nono of
llo vomon or llo oIdor poopIo on llo slip's crov (boll mon and vomon)
voro landcuffod. OnIy llo young mon vlo couId acl viId or allack us."
597

SoIdior no. 10 slalod: "Il is imporlanl lo nolo llal I did nol soo ovon ono
voman or any oIdor / oIdorIy man vlo vas landcuffod. Tlo onIy onos
vlo voro landcuffod voro suspoclod lorrorisls vlo conslilulod a llroal
lo llo socurily of our forcos."
598
Knivos, sIingslols and marbIos voro lakon
from somo of llo IHH aclivisls vlo voro landcuffod.
599
Tlo commandor
of llo lakoovor forco slalod llal ovon aflor llo voundod voro romovod,
llo plysicaI rosislanco of somo of llo parlicipanls conlinuod:
"Aflor aII of llo voundod voro romovod (aboul 10-15), I don'l
romombor oxaclIy, llo rosislanco conlinuod - plysicaI, by somo
of llo aclivisls - incIuding ono of llom slruggIing viIdIy, vlicl
roquirod us lo uso forco in ordor lo slop lim."
600
Il slouId bo nolod llal in lis loslimony boforo llo Commission
on Oclobor 25, 2010, Mulammad Zidan, clairman of llo IsraoIi Arab
Moniloring Commilloo, slalod llal aII of llo fIoliIIa parlicipanls voro
landcuffod.
601
Hovovor, Malmoud Abu-Dabas, llo load of llo soullorn
brancl of llo IsIamic Movomonl, slalod in lis loslimony on Oclobor 25,
595 |!.
596 Soo loslimony of Slayolol commandor, |!., al 2.
598 Soo loslimony of soIdior no. 10, |!., al 3, llougl llo commandor of llo lakoovor forco
loslifiod llus: vo conconlralo llom al poinls on llo opon dock, frisk lloir bodios - porform
a soarcl lo mako suro lloy aro nol carrying any voapons, vill llo vomon coming oul
boing soarclod by fomaIo YASAM poIico officors, and vo landcuff ovoryono, bul Ialor lo
slalos: vo did nol landcuff aII llo vomon and oIdorIy poopIo. Soo llo Commandor of llo
Takoovor Iorcos loslimony, |!., al 6-7. Ior an addilionaI doscriplion of llo landcuffing of
rosislors on llo roof for foar lloy vouId conlinuo allacking IDI soIdiors, soo llo loslimony
of soIdior 24, |DI Ccmp|ciicn Rcspcnsc c| .11.2010, supr. nolo 486, al 2.
599 On llis mallor soo llo loslimony of soIdior no. 11, al 2, Toslimony of soIdior no. 24, al 2, as
voII as Toslimony of soIdior no. 25, |!., al 3.
600 Soo loslimony of llo Commandor of llo Takoovor Iorco, |!., al 6-7.
601 Transcripl of sossion no. 15 "Toslimony of Mr. Mulammod Zidan" (Ocl. 25, 2010), al 11.
2010, llal nol aII of llo passongors voro landcuffod, bul rallor "llo docisivo
majorily".
602
AddilionaI ovidonco oblainod by llo Commission supporls
llo concIusion llal nol aII of llo fIoliIIa parlicipanls voro landcuffod.
Ior oxampIo, various vidoo foolago from aboard llo M.ti M.rm.r. aflor
llo lakoovor and boforo anclorago in llo porl of Asldod cIoarIy supporls
llis concIusion.
603
AIso, in llo inlornaI invosligalion conduclod by llo
"Masada" unil foIIoving llo lakoovor oporalion on llo M.ti M.rm.r., il
vas nolod llal 195 passongors voro undor llo suporvision of mombors of
llis unil and voro nol landcuffod, and llal onIy llo "poopIo vill figlling
polonliaI" voro landcuffod.
604
145. During llo aforosaid soarclos, knivos and Iargo sums of casl voro
found on somo of llo IHH aclivisls. During lloso soarclos, magnolic
modia vlicl vas found vas confiscalod (llo magnolic modia incIudod,
inicr .|i., Iaplop compulors, mobiIo plonos, momory cards, lard discs,
vidoos, diskollos, compacl discs, movios, pIayors, olc., camoras voro nol
lakon, aIllougl lloir momory clips voro).
605
During llo soarclos, somo
of llo oquipmonl vlicl lad boon lakon from soIdiors no. 1, no. 3 and
no. 4 (llo soIdiors vlo voro lakon boIov dock) vas found. SimiIarIy,
soIdior no. 3's pisloI vas found liddon insido llo laIIs, vlicl as far as
is knovn lo lad nol managod lo slool boforo il vas lakon from lim by
llo IHH aclivisls, il vas found vill ils magazino omply and llo guard
back (i.o. a voapon from vlicl somoono lad slol aII of ils ammunilion,
villoul porforming llo oporalion aflor finisling llo ammunilion, vlicl
is slandard IDI procoduro).
606
Boyond llis, no firoarms voro found on llo
M.ti M.rm.r., nol ovon llo voapons llal lad boon lakon from llo lvo
soIdiors by llo IHH aclivisls. Hovovor, ono soIdior loslifiod llal lo sav
602 Transcripl of sossion no. 15 "Toslimony of Sloikl Hamad Abu-Dabas" (Ocl. 25, 2010), al
33.
603 Soo for oxampIo vidoo fiIo "SaIal_is_a_Iivo.mov", on foIdor 13, N.t D.i. Disc, supr.
nolo 5, lapod aflor llo lakoovor by llo army forcos, prosonling sovoraI dozon mon, somo
landcuffod and somo nol (llo oxacl limo of llo vidoo is uncIoar from llo proporlios of
llo fiIo submillod lo llo Commission, bul il is cIoar llal il vas lapod aflor llo lakoovor
and boforo llo slip roaclod Asldods Iorl). Soo aIso vidoo fiIo "MOV023.mov", in foIdor
Mcmcr C.r!, in foIdor Sc., |!. (llo vidoo vas slol on 31.5.2010 al 10:54, according lo llo
fiIos proporlios).
604 Soo M.s.!. Unii inuir 11 (Ocl. 5, 2010), llo foIdor conlaining llo inquiry vas markod
as oxlibil 98 by llo Commission. Irom llo inquiry il arisos llal 314 passongors voro
landcuffod by Masada porsonnoI, vliIo llo rosl voro landcuffod by IDI soIdiors.
605 Soo |DI ccmp|ciicn rcspcnsc c| 15.11.2010, supr. nolo 400, al para. N, according lo vlicl
somo of llo magnolic modia gallorod al llis slago vas lransforrod lo IsraoI by loIicoplor
lo bo usod by llo IDI spokosporson and advocacy doparlmonl . Tlo rosl of llo maloriaI
vas lransforrod lo llo Documonl and ToclnoIogicaI Capluro CoIIoclion unil upon llo
vossoIs arrivaI al Asldod Iorl.
606 Soo |!., al para. K.
a firoarm boing llrovn inlo llo soa.
607
Various ollor combal oquipmonl
vas found on llo M.ti M.rm.r., vlicl apparonlIy lad boon brougll on
board by llo fIoliIIa parlicipanls, incIuding fIaros, rods, axos, knivos, loar
gas, gas masks, marbIos, scrovs, vosls vill llo crosconl symboI, nigll
vision dovicos (incIuding lvo lypos of dovicos llal ampIify slarIigll
llrougl boll or onIy ono oyo), olc.
608
Tlo commandor of "conlor B" (llo
commandor of llo forco llal look conlroI of llo S|cn!cn| Bc.i 8000 and llo
G.zzc, and vlo aflorvards boardod llo M.ti M.rm.r. in ordor lo assisl)
slalod llal lo sav MoIolov cocklaiIs vlicl lad boon pIacod in ordorIy
slacks.
609
In addilion, scarvos, and fIags of llo Hamas movomonl and ils
miIilary ving voro found.
Aflor llo soarclos and llo landcuffing lad boon compIolod, llo
fIoliIIa parlicipanls voro brougll back inlo llo laIIs, vloro lloy sal unliI
arrivaI in llo porl of Asldod. According lo llo slalomonls of llo combal
porsonnoI, llo parlicipanls voro givon valor and food during llis slago,
and lloy voro oscorlod lo llo ballrooms upon lloir roquosls.
610
SimiIarIy,
according lo llo slalomonls of llo soIdiors, al llis slago llo landcuffs
voro romovod from somo of llo parlicipanls vlo lad boon landcuffod
oarIior, and from llo slip's crov as voII, and rogarding ollors, llo pIaslic
roslrainls voro ropIacod and pul on moro IoosoIy.
611
Il slouId bo nolod
llal ono of llo passongors on llo vossoI loId an infanl. According lo llo
soIdiors' slalomonls, lloy pormillod lor lo go lo lor bag in ordor lo lako
suppIios for llo baby and aIIovod lor lo vaIk frooIy around llo slip.
612
Il slouId bo nolod llal during llo soarclos conduclod on llo M.ti
M.rm.r., no lumanilarian suppIios voro found.
607 Soo loslimony of soIdior no. 33, |DI Ccmp|ciicn Rcspcnsc c| .11.2010, supr. nolo 486, al 2-3.
608 Soo loslimony of Toam Commandor R, |!., al 2, as voII as loslimony of soIdior no. 15,
|nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 5-6.
609 Soo llo loslimony of Commandor of Conlor B, |!., al 2.
610 Soo for oxampIo llo loslimony of commandor of llo Takoovor Iorco, |!., al 6-7, as voII as
llo loslimony of Commandor of Conlor A, |!., al 2.
611 Soo loslimony of soIdior no. 10, |!., al 3, as voII as loslimony of soIdior no. 27, |DI
Ccmp|ciicn Rcspcnsc c| .11.2010, supr. nolo 486, al 2-3. Soo aIso Transcripl of sossion
no. 11 "Toslimony of Ioroignors & Inforcomonl Adminislralion Hoad" (Ocl. 12, 2010),
al 10 |loroinaflor 1csiimcn c| Icrcigncrs |n|crccmcni A!minisir.iicn Hc.!j, according
lo vlicl: somo voro lakon off llo slip landcuffod, mosl voro nol landcuffod. Somo,
lloso vlo voro llo provocalours in llo fuII sonso of llo vord, lloy voro landcuffod.
Tlis loslimony rocoivos supporl from a vidoolapod al Asldod Iorl and submillod lo
llo Commission by llo Irison Sorvico, soo Vidoo CD I|cii||. .rrcsiccs As|!c! Pcri (Ocl. 5,
2010), llo foIdor conlaining llo invosligalion vas markod by llo Commission as oxlibil
98 |loroinaflor Priscn Scrticc Vi!cc CDj.
612 In llis conloxl soo llo loslimony of soIdior no. 26, |!., al 2-3, loslimony of soIdior no. 25, |!.,
al 4, as voII as llo loslimony of soIdior no. 27, |!.
!"# !+0#&-#5 &* )"# J)"#5 K#66#.6
146. As slalod abovo, fivo ollor vossoIs approaclod llo coasl of IsraoI
on May 31, 2010, in addilion lo llo M.ti M.rm.r.: llo boals Bc.i S|cn!cn|
8000 (loroaflor: L&+) MNNN)
613
and C|.||cngcr 1, and llo slips Dc|cnc Y,
G.zzc, and Sc|i.. Tlo IDI look conlroI of lloso vossoIs aflor lloy rofusod
lo lood varnings llal voro lransmillod lo llom. No Ioss of Iivos occurrod
on lloso vossoIs, aIllougl llo soIdiors oncounlorod vioIonco during
llo lakoovor of somo of llom, il vas al a mucl Iovor IovoI llan lloy
oncounlorod on llo M.ti M.rm.r.. Will rospocl lo somo of llo vossoIs,
forco vas usod in ordor lo compIolo llo lakoovor. Tlo aclions lo lako
conlroI of lloso vossoIs aro doscribod briofIy boIov, in llo clronoIogicaI
ordor of lloir boing lakon ovor.
L&+) MNNN
147. Tlo lakoovor of llis boal commoncod al 4:27 a.m, vlicl carriod
approximaloIy 48 parlicipanls and crov mombors (mosl of llom voro
Iuropoans, and lloro voro four Amoricans, a }ordanian, a Moroccan, a
Iobanoso and lvo Iranians). Ninoloon soIdiors boardod llo dock from
lvo Morona spoodboals, vlicl simuIlanoousIy approaclod llo sidos
of llo boal, aflor painlbaIIs voro slol al lloso fIoliIIa parlicipanls vlo
voro slanding on llo dock and llroving various objocls al llo soIdiors,
lo causo llom lo fIoo from llo dock. During llo lakoovor, llo forco
oncounlorod vioIonco, incIuding an allompl lo soizo a voapon from a
soIdior, pusling and sloving soIdiors from llo slairs lo llo Iovor IovoI,
plysicaI cIaslos al cIoso rangos, and barricading llomsoIvos onlo llo
slip's bridgo. During llo lakoovor, plysicaI forco vas usod againsl llo
vioIonl aclivisls. IainlbaII rifIos voro usod (157 painlbaIIs voro slol
during llo lakoovor, somo of llo painlbaII rifIos voro brokon during
llo lakoovor oporalion), 4 fIasl bang gronados voro llrovn (a lypo of
slun gronado llal croalos noiso and lomporary bIindnoss, vlicl is usod
for disporsing domonslralions and conlroIIing disordorIy conducl) and
Tasors voro usod.
614
No Iivo ammunilion voapons voro usod during llo
lakoovor. During llo lakoovor, four passongors voro injurod from land-
lo-land combal bIovs. Tloso passongors rofusod lo accopl IsraoIi modicaI
lroalmonl, and lloy voro lroalod by llo slip's doclor vliIo lloy voro nol
613 In llo slips documonls onIy llo namo SIINDONH appoars. In IDI documonls il is
namod Boal 8000. In ordor lo provonl confusion llis slip viII bo caIIod by llo namo
givon lo il in IDI documonls. Soo Bc.i 8000-S|cn!cn| |n|crm.iicn Dccumcnis Iocalod on llo
slip by llo IDI and lransforrod lo llo Commission, markod by llo Commission as oxlibil
91.
614 Soo Navy Inquiry, markod by llo Commission as foIdor 90.
landcuffod. Oul of llo fIoliIIa parlicipanls vlo voro on llo dock of llis
boal, aboul fivo of llo passongors voro landcuffod al llo limo llo bridgo
vas lakon ovor, and aboul llroo addilionaI passongors voro landcuffod
al a Ialor slago bocauso lloy "lriod lo incilo ovoryono |...j and lloy bogan
caIIing oul lo riso up and rosisl, incIuding passagos in Arabic from llo
Koran."
615
According lo llo slalomonl of llo commandor of conlor B, llo
sonior commandor of llo forco dosignalod lo lako conlroI of llis boal,
llo landcuffing vas dono vliIo llo parlicipanls voro silling on pIaslic
clairs, somo of llom voro roIoasod during llo journoy lo llo porl of
Asldod, and, vill rospocl lo ollors, llo prossuro of llo pIaslic roslrainls
vas Ioosonod aflor lloy compIainod aboul llom.
616
Il slouId bo nolod llal soIdior no. 19 slalod llal, during llo slago
of llo fasl-roping from llo loIicoplors onlo llo M.ti M.rm.r., llis
boal manouvorod in sucl a vay llal aImosl brougll il onlo a coIIision
courso vill, and il aIso clasod aflor, llo command vossoI (llo Z.|.rcn)
for Conlor A (llo forco dosignalod lo lako conlroI of llo M.ti M.rm.r.).
According lo lim, llo boal roaclod a dislanco of Ioss llan lvonly molors
from llo command vossoI and, finaIIy, aflor a slarp ovasivo manouvor,
llo command vossoI managod lo oscapo.
617
No lumanilarian suppIios voro found on llis boal.
618
="+..#'4#5 O
148. Tlo lakoovor of llo C|.||cngcr 1 commoncod al 4:56 a.m. Tloro
voro 17 crov mombors and passongors aboard (incIuding six vlo loId
Amorican passporls, lvo vlo loId Brilisl passporls and ono vlo loId
an IsraoIi passporl). Irior lo llo lakoovor, llo boal porformod an ovasivo
manouvor and llo forco lad lo conducl a pursuil in ordor lo roacl il. Tlo
Takoovor Iorco Commandor (llo commandor of llo forco vlicl lad boon
dosignalod lo lako ovor llo M.ti M.rm.r.) furllor slalod llal llo boal
lriod lo run inlo llo Morona spoodboal carrying lis forco, and llo Morona
lad lo porform a manouvor lo oscapo.
619
Aflor llo forco roaclod llo boal,
615 Soo loslimony of llo Commandor of Conlor B, |DI Ccmp|ciicn Rcspcnsc c| .11.2010, supr.
nolo 486.
616 |!.
618 Soo llo loslimony of commandor of Conlor B, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451,
al 2. Soo aIso Citi|i.n Pc|ic Rcg.r!ing G.z. Sirip - P.ri B, supr. nolo 57, al appondix I.
619 Soo loslimony of llo commandor of llo lakoovor forco, |nuir |xp.nsicn c| 20.9.2010, supr.
nolo 451, al 1: Noar llo claIIongor slip il allompls lo run our vossoI ovor, and llrougl
aggrossivo manouvoring vo ovado il. Soo aIso in llo loslimony of soIdior no. 20, |!., al
1: al llis slago as I am moving fasl lovards llo largol I nolico llo ClaIIongor saiIing
lovards us quickIy and lrying lo ram us. Wo porformod an ovasion from il and al llo samo
limo soIdior no. 19 camo up on llo radio and loId mo lo bo carofuI sinco llo claIIongor is
15 soIdiors cIimbod aboard il from lvo Morona spoodboals. On llo dock of
llo boal, llo soIdiors oncounlorod vorbaI vioIonco and an allompl lo pusl
llom. Tlo dining laII vas Iockod from llo insido by llo boal's passongors.
During llo lakoovor, approximaloIy 15 painlbaIIs voro firod and Tasors
voro usod againsl sovoraI fIoliIIa parlicipanls.
620
Tlo parlicipanls rosislod
rocoiving modicaI lroalmonl and somo voro landcuffod by IDI soIdiors.
No lumanilarian suppIios voro found on llo boal.
621
D#*#'# P
149. Al 5:15 a.m., llo lakoovor of llis slip commoncod. Tloro voro
21 passongors and crov mombors on board, aII of vlom voro Turkisl.
Iourloon soIdiors fasl-ropod onlo llo dock of llo slip from a loIicoplor
and look conlroI, villoul any vioIonl incidonls boing roporlod, ollor
llan vorbaI vioIonco. Il slouId bo nolod llal llo slip's cranos voro
pIacod in sucl a vay llal lloy inlorforod vill llo fasl-roping from llo
loIicoplor, vlicl roquirod fasl-roping from a groalor loigll and a clango
in llo fasl-roping Ianding poinl (llo fasl-roping vas conduclod onlo a
Iocalion adjaconl lo llo slip's bridgo). Il slouId aIso bo nolod llal in llo
communicalions room llal lad boon sol up on llo slip, llo lakoovor forco
found movios vlicl documonlod llo crov mombors praclicing llo uso
of valor losos againsl a lakoovor. AIso, cabIos lad boon slrung oul, and
slonos and molaI rods lad boon pIacod aIong llo sidos of llo slip. Tlo
slip's passongors voro nol landcuffod aflor llo lakoovor.
Tlo forco commandor slalod:
"My gonoraI sonso from llo inquiry of llo poopIo and from llo
proparalions aboard llo slip vas llal llo slip vas proparod for
a plysicaI confronlalion and provocalion, and closo during our
lakoovor nol lo do so, bocauso lloy loard in roaI limo (from llo
saiIor) llal lloro voro voundod aboard llo M.ti M.rm.r. and
so lloy voro afraid."
622
Humanilarian suppIios voro found on llis slip (vlooIclairs,
modicaI oquipmonl, sanilary iloms, carlons of cIolling, loys, bods,
carpols, bIankols, olc.), as voII as conslruclion suppIios (rav maloriaIs for
loadod for mo. I approvo llo roporl and incroaso spood and manago lo ovado llo largol
and approacl llo Marmara |.j.
620 Soo Navy Inquiry, |xccuiicn Dcscripiicn Ccnicr C, markod by llo Commission as foIdor 90.
621 Soo Citi|i.n Pc|ic Rcg.r!ing G.z. Sirip - P.ri B, supr. nolo 57, al appondix I.
622 Soo llo loslimony of commandor of llo Takoovor Iorco, |nuir |xp.nsicn c| 20.9.2010,
buiIdings, conslruclion maloriaIs for slrucluros, slool molaI, olc.).
623
Ior a
compIolo Iisl of llo suppIios vlicl voro on llis slip, soo annox "I".
>+??#
150. Al 5:45 a.m., llo lakoovor of llis slip commoncod. Tloro voro 18
passongors aboard, aII of vlom voro Turkisl cilizons. Ninoloon soIdiors
boardod llo slip from lvo Morona spoodboals vlicl approaclod llo
sidos of llo slip. Tlo lakoovor of llo slip did nol invoIvo vioIonco.
Tlo commandor of conlor B slalod:
"Tlo fioId commandor inslruclod mo lo advanco lo laking conlroI
of llo G.zzc. I updalod llo forco and vo loadod lo llo G.zzc. Tlo
fioId commandor camo up opposilo mo, vliIo vo voro moving,
and lo loId mo llal lloy lad aII surrondorod and voro on llo
bridgo vill lloir lands up. I boardod llo slip, vlicl vas nol
moving al llo limo. AII llo poopIo voro gallorod on llo bridgo
and vo vonl up, lloro vas no rosislanco. Tlo caplain gavo mo
llo passongor Iisl. Tloro vas fuII cooporalion. Wo did nol soo
any voapons or combal iloms of any kind. On llo boal, lloro
voro aboul 18 poopIo, vlo voro vory frigllonod."
624

Tlo slip's cargo incIudod 1,358 unils of comonl and 304 unils of
molaI girdors.
625
@&*3+
151. Al 5:45 a.m., llo lakoovor of llis slip bogan. Aboard llis slip
voro 31 passongors, of vlom 28 loId Grook passporls and llroo voro
Svodos. Iiglloon soIdiors boardod llo slip from lvo Morona spoodboals
vlicl approaclod llo sidos of llo slip. Tlo soIdiors did nol oncounlor
vioIonco, aIllougl sovoraI parlicipanls did nol cooporalo and did nol
lood llo soIdiors' inslruclions. Tlo soIdiors ordorod llo passongors lo
accompany llom, lo doscond from llo slip's bridgo, and lo como lo an
assombIy poinl dosignalod on llo roof in fronl of llo bridgo, undornoall
a slado nolling. SovoraI parlicipanls rofusod lo cooporalo, cursod and
svoro al llo soIdiors, and agilalod and incilod llo rosl of llo passongors.
Tloso parlicipanls aIso grabbod onlo llo slip's raiIing and llo molaI
foncing aIong llo odgos of llo slip's bridgo. Iorco vas appIiod and
a Tasor vas usod in ordor lo landcuff lloso parlicipanls. Tlo maloriaI
boforo llo Commission aIso indicalos llal, during llo allompl lo movo
623 1|c Citi|i.n Pc|ic 1cu.r!s i|c G.z. Sirip - Rcg.r!ing i|c C|.ims c| Hum.n Rig|is Org.niz.iicns
c| 31.10.2010, supr. nolo 217, al 30-31.
624 Soo llo loslimony of commandor of Conlor B, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451.
625 Soo Citi|i.n Pc|ic Rcg.r!ing G.z. Sirip - P.ri B, supr. nolo 57, al appondix I.
lloso parlicipanls lo llo assombIy poinl, fivo painlbaIIs voro firod al llo
Iovor parls of lloir bodios.
626
Tlis mallor is discussod boIov.
Humanilarian suppIios voro found aboard llis slip (oIoclric
vlooIclairs, modicaI suppIios, carlons of cIolling, loys, valor lanks, olc.).
Ior a compIolo Iisl of llo suppIios found aboard llis slip, soo annox "I".
!5#+)8#') &* )"# E.&)3..+ B+5)3%3(+')6 *5&8 )"#35 <553-+. 3' )"#
<6"1&1 B&5) 7')3. )"#35 D#(&5)+)3&' *5&8 :65+#.
152. Tlo vossoIs in llo fIoliIIa bogan onloring llo porl of Asldod al
11:00 a.m. on May 31, 2010. Tlo M.ti M.rm.r. vas liod up in pior no. 1 in
llo porl of Asldod on May 31, 2010, al 5:19 p.m.
627
Upon ils arrivaI al llo
Asldod porl, "llo balon vas landod ovor" (aullorily vas lransforrod)
from llo IDI forcos lo llo SpociaI ConlraI Unil forco (loroaflor: Yamam),
(llo counlor-lorrorism unil of llo IsraoIi Bordor IoIico), vlicl look
aullorily for conlroI ovor landIing llo slips. Aflorvards, llo procoss
of dobarking llo fIoliIIa parlicipanls from llo slips commoncod. On
llo slips' gangvays, anollor "balon landovor" look pIaco bolvoon llo
mombors of Yamam and llo oscorl forco composod of boll a poIico officor
and an IDI officor or a non-Commissionod officor. Il slouId bo nolod llal
llo fIoliIIa parlicipanls voro inslruclod lo Ioavo lloir porsonaI boIongings
on llo vossoIs. Tlo IDI forcos guardod llo porsonaI boIongings, and
aflor lloy voro oxaminod by llo bomb-squad unil, lloy voro coIIoclod
by llo IDI, vill oacl bag boing faslonod vill a socurily cIosuro ("soaIod
vill an individuaI numbor") and documonlod. Tlo porsonaI offocls voro
soarclod by llo miIilary poIico and coIIoclod in soparalo conlainors, in
accordanco vill llo vossoI on vlicl llo parlicipanls lad journoyod.
628
Il
is nolod llal aflor llo ovonl, sovoraI invosligalions voro conduclod (somo
of vlicl Iod lo indiclmonls) concorning llofls porpolralod by somo IDI
soIdiors during llo slago vlon lloy voro in clargo of guarding llo
porsonaI boIongings of llo parlicipanls. Tlis mallor viII bo addrossod
boIov (soo boIov, para. 160).
According lo llo invosligalion of llo Irison Sorvico, procossing llo
arrivaI of llo fIoliIIa parlicipanls on Iand commoncod al 1:00 p.m.
629
Iour
626 Soo llo loslimony of soIdior no. 18, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 4, Soo
aIso summary, |!., al 10.
627 Tlo CHAII|NG|R 1 slip onlorod Asldod Iorl al 11:00, Bc.i 8000 onlorod Asldod Iorl al
12:00, llo D|I|N| Y slip onlorod Asldod Iorl al 15:19, llo GAZZ| slip onlorod Asldod
Iorl al 15:30, Tlo SOI|A slip onlorod Asldod Iorl al 16:25.
628 |DI ccmp|ciicn rcspcnsc c| 15.11.2010, supr. nolo 400, al para. N.
629 Opcr.iicn Win!s c| Hc.tcn , 14 (invosligalivo roporl by llo Irison Sorvico Commandor,
Ocl. 5, 2010) markod by llo Commission as oxlibil 98 |loroinaflor Priscn Scrticc |ntcsiig.iitc
lonls voro sol up in llo Asldod porl: (i) llo firsl vas usod for a socurily
clock of llo fIoliIIa parlicipanls vlo voro lakon off llo vossoIs, (ii) llo
socond vas usod for conducling loarings by llo bordor palroI suporvisor
on bolaIf of llo IopuIalion and Immigralion Aullorily of llo Minislry of
llo Inlorior, pursuanl lo llo Inlry inlo IsraoI Iav, 5712-1952 (loroaflor:
Entry intn IsraeI Law),
630
(iii) llo llird vas usod for conducling modicaI
oxaminalions, and (iv) llo fourll vas usod lo proparo llo parlicipanls
lo bo lakon from llo porl of Asldod lo prison faciIilios or lo Bon-Gurion
airporl.
631
Il slouId bo nolod llal llo onliro faciIily vas a cIosod faciIily
undor llo conlroI of llo IDI, llal roslrooms lad boon sol up in advanco,
and llal vliIo in llis faciIily, llo parlicipanls voro givon drinking valor
and a somolling lo oal.
632
As llo parlicipanls dobarkod from llo vossoIs in llo porl of Asldod,
oacl ono vas soarclod vill a molaI doloclor (simiIar lo llo mannor in
vlicl lloso soarclos aro conduclod in airporls llrougloul llo vorId).
Al firsl, llo soarcl vas conduclod by moans of a magnolomolric galo.
Al a corlain slago, llo magnolomolric galo broko dovn and, lloroforo,
soarclos voro conduclod vill a land-loId molaI doloclor by mombors of
llo "Naclslon" unil of llo Irison Sorvico.
633
In gonoraI, plysicaI soarclos
voro nol porformod on llo parlicipanls, ollor llan inslancos in vlicl llo
molaI doloclor omillod an aIorl aboul llo prosonco of suspicious molaIs.
In llo ovonl llal a plysicaI soarcl vas roquirod (vlicl vas roquirod in
aboul 20 of llo soarclos, according lo llo Naclslon unil), llo parlicipanl
boing soarclod vas brougll lo a privalo oxaminalion slaII.
634
Tlo maloriaI
boforo llo Commission indicalos llal a soarcl of a maIo vas conduclod
onIy by a maIo and llo soarcl of a fomaIo vas conduclod onIy by a
fomaIo.
635
Il slouId bo nolod llal during llo soarcl of ono of llo fIoliIIa
Rcpcrij.
630 Soo fourll claplor of llo Iav, vlicl doaIs vill oxpuIsion and cuslody. Il is parlicuIarIy
slalod in para. 13(a) of IsraoIs Inlry Iav 5712-1952 llal anyono vlo is nol an IsraoIi
cilizon or an immigranl according lo llo Iav of Rolurn, 5710-1950 and found in IsraoI
villoul a Iormil of Rosidonco (undor llis Iav - an unIavfuI rosidonl), vouId bo oxpoIIod
from IsraoI as soon as possibIo unIoss lo las proviousIy doparlod of lis ovn accord.
631 Soo 1csiimcn c| Icrcigncrs |n|crccmcni A!minisir.iicn Hc.!, supr. nolo 611, al 2.
633 On llis mallor soo G.z. I|cii||. - Rc|crcncc (summalion of ovonls by Brigadior Yossi
Mikdasl, commandor of llo Naclslon Irison Sorvico unil, Ocl. 17, 2010), markod by
llo Commission as oxlibil 130 |loroinaflor N.c|s|cn Priscn Scrticc Unii Ccmm.n!crs
Rc|crcnccj.
634 Iollor from Brigadior Yossi Mikdasl, commandor of llo Naclslon Irison Sorvico unil lo
llo Assislanl Commissionor lilIod G.z. I|cii||. - Rc|crcncc, roforonco no. 58740610, (Ocl. 17,
2010), al para. 1, markod by llo Commission as oxlibil 130.
635 Soo 1csiimcn c| Icrcigncrs |n|crccmcni A!minisir.iicn Hc.!, supr. nolo 611, al 10-11, Soo
aIso N.c|s|cn Priscn Scrticc Unii Ccmm.n!crs Rc|crcncc, supr. nolo 633.
parlicipanls, an aIorl vas omillod by llo land-loId molaI doloclor vlon
llo inslrumonl passod noar lor groin aroa.
636
Tlo maloriaI vlicl vas
lransforrod lo llo Commission from llo Asldod porl socurily indicalos
llal llo parlicipanl voro ovoraIIs and llal, in llo aforosaid aroa, no molaI
vas visibIo (zippor, bullons, olc.). Tlo porson conducling llo soarcl
consuIlod vill lor suporvisors aboul llis mallor, and il vas docidod lo
porform an addilionaI soarcl villoul llo ovoraIIs. Tlo parlicipanl vas
roquoslod lo onlor llo privalo oxaminalion slaII, lo vlicl llo onlry of mon
vas prolibilod, and lo roII llo ovoraIIs dovn lo lor knoos. Tlo socurily of
llo porl of Asldod roporlod llal llo parlicipanl romainod drossod in lor
slirl and lor undorvoar. Tlo porson conducling llo soarcl porformod llo
addilionaI soarcl vill llo assislanco of a land-loId molaI doloclor. Wlon
slo rocoivod anollor aIorl, slo askod llo fIoliIIa parlicipanl vlal slo vas
concoaIing, and llo parlicipanl villdrov lor mobiIo plono. Tlo mobiIo
plono vas lransforrod lo llo IDI roprosonlalivo on silo, llo parlicipanl
vas roIoasod for llo rosl of llo landIing by llo ollor aullorilios in llo
absorplion procoss.
Iscorling and guarding of llo dolainoos vas conduclod by llo
Naclslon unil (vlicl is oxporioncod in oscorling and lransporling
dolainoos and prisonors), and mombors of llo "Oz" unil of llo IopuIalion
and Immigralion Aullorily of llo Minislry of llo Inlorior.
637

Aflor llo socurily clock, llo fIoliIIa parlicipanls voro diroclod
lovards ono of llo 14 slalions sol up by llo Bordor ConlroI suporvisor
of llo IopuIalion and Immigralion Aullorily. Wlon lloy voro brougll
lo llo loaring boforo roprosonlalivos of llo Inforcomonl and Ioroignors
Doparlmonl, lloso fIoliIIa parlicipanls vlo voro landcuffod voro roIoasod
from lloir landcuffs. Al lloso slalions, llo parlicipanls voro idonlifiod,
lloir facos voro plolograplod, and a loaring vas conduclod, vill llo
assislanco of inlorprolors.
638
According lo llo loslimony of llo diroclor of
llo Inforcomonl and Ioroignors Doparlmonl, Mr. Yossi IdoIsloin, al llis
slago somo of llo fIoliIIa parlicipanls ongagod in passivo rosislanco, bul
forco vas nol usod.
639
636 Soo Iollor from llo Asldod Iorl Diroclor GonoraIs offico lo llo IubIic Commission lo
Ixamino llo Marilimo Incidonl of May 31, 2010 (Doc. 21, 2010).
637 Transcripl of sossion no. 15 "Toslimony of Irison Sorvico Commandor" (Ocl. 12, 2010), al
9-12 |loroinaflor 1csiimcn c| Priscn Scrticc Ccmm.n!crj.
638 Soo 1csiimcn c| Icrcigncrs |n|crccmcni A!minisir.iicn Hc.!, supr. nolo 611, al 2,
according lo vlicl lloro voro aboul 40 lransIalors in llo aroa, incIuding 26 spoakors of
Turkisl, 8 spoakors of Arabic, 4 spoakors of Ironcl, ono spoakor of Gorman, 3 spoakors of
Spanisl, as voII as many IngIisl and Russian Ianguago lransIalors, and so on.
639 |!., al 3, in llis conloxl il slouId bo monlionod llal IsraoIs Inlry Iav 5712-1952 doos nol
roquiro llo unIavfuI rosidonls agroomonl for lis oxpuIsion from llo Slalo of IsraoI.
Al llo concIusion of llo procoss, dolonlion ordors voro issuod
(incIuding a copy in llo Ianguago of oacl dolainoo), aullorizing llo
incarcoralion of oacl dolainoo unliI lloir doporlalion from llo lorrilory
of llo Slalo of IsraoI. Tlo arrosl varranls givo llo dolainoo llo rigll lo
romain imprisonod villin llo lorrilory of llo Slalo of IsraoI for 72 lours,
so llal s/lo can oxorciso llo rigll lo appoaI llo Minislry of llo Inlorior's
docision lo doporl lim or lor from llo Slalo of IsraoI boforo a dolonlion
courl.
640
Aflor llo compIolion of llis procoss, llo fIoliIIa parlicipanls
voro brougll lo llo modicaI lonl, vlicl aIso lad 14 slalions (in oncIosod
slaIIs). Al lloso slalions, llo parlicipanls voro askod aboul lloir modicaI
condilion (vill llo assislanco of inlorprolors), and lloy voro oxaminod
by a plysician or a modic. Aflorvards, llo fIoliIIa parlicipanls voro lakon
lo llo Iasl lonl, vloro biomolric moasuros voro lakon (fingorprinling and
plolograpling).
641
Il slouId bo nolod llal llo invosligalion of llo Irison
Sorvico indicalos llal llis slalion vas cancoIIod by llo dopuly commandor
of llo Naclslon unil in llo oarIy slagos of llo absorplion procoss duo lo
llo groal ovorIoad vlicl dovoIopod al llis slalion. Il vas docidod llal llo
biomolric moasuros vouId bo lakon in llo prisons insload. Hovovor, llo
procoss vas nol compIolod al llo prisons oillor, duo lo "ovorIoad and llo
absorplion procoss in llo vings."
642
Il slouId bo nolod llal a movio doIivorod lo llo Commission by
llo Irison Sorvicos indicalos llal somo of llo fIoliIIa parlicipanls rofusod
lo movo llrougl llo various lonls, and llal mombors of llo "Naclslon"
unil lad lo drag llom plysicaIIy from pIaco lo pIaco. Il slouId aIso bo
nolod llal in llo briofing vlicl llo commandor of llo "Naclslon" unil,
Brigadior Yossi Mikdasl, loId on May 31, 2010, for mombors of llo unil
boforo llo dobarking of llo fIoliIIa parlicipanls from llo vossoIs, il vas
oxpIainod llal llo fIoliIIa parlicipanls slouId nol bo landcuffod, ollor
llan in oxcoplionaI circumslancos and vill prior approvaI.
643
Il vas
docidod llal llo officiaI vlo couId givo approvaI in llis conloxl vouId bo
llo dopuly Commissionor of llo Irison Sorvicos, oxcopl in llo ovonl llal a
sponlanoous oxlraordinary ovonl dovoIopod vlicl roquirod landcuffing
ovon villoul llo aforosaid approvaI.
644
During llo absorplion plasos
al llo porl of Asldod, llroo fIoliIIa parlicipanls allomplod lo allack
porsonnoI, and al llo diroclivo of llo commandor of llo "Naclslon" unil,
lloy voro bound, vill llo uso of forco.
645
640 Soo para. 13(d) of IsraoIs Inlry Iav 5712-1952.
641 Soo Priscn Scrticc |ntcsiig.iitc Rcpcri, supr. nolo 629, al 22.
642 |!.
643 Soo Priscn Scrticc Vi!cc CD, supr. nolo 611, vloro llo briofing is vidoolapod.
644 1csiimcn c| Priscn Scrticc Ccmm.n!cr, supr. nolo 637, al 16.
153. Tlo procoss of rocoiving llo parlicipanls al llo porl in Asldod
concIudod on }uno 1, 2010, al 9:45 a.m.
646
Iorly-fivo fIoliIIa parlicipanls
roquoslod immodialo doporlalion from llo lorrilory of llo Slalo of IsraoI,
and llus lloy voro oscorlod diroclIy from llo Asldod porl lo Bon-Gurion
airporl by llo Naclslon unil of llo Irison Sorvico.
647
Tlo romaindor of llo
fIoliIIa parlicipanls voro lransporlod
648
lo faciIilios of llo Irison Sorvico,
dislribulod as foIIovs: 604 of llo dolainoos voro lransporlod lo llo "IIIa"
prison, oigll of llo dolainoos voro lransporlod lo llo "Givon" prison, 19
of llo dolainoos voro lransporlod lo llo Irison Sorvico's modicaI conlor
for modicaI lroalmonl, sovon of llo dolainoos, cilizons of llo Slalo of IsraoI,
voro lransforrod lo llo aullorily of llo IsraoIi poIico for inlorrogalion and
dolonlion, and, aflor llo inlorrogalion, llroo of lloso sovon voro brougll
lo llo "Slikma" prison.
649
According lo llo Irison Sorvico's invosligalion,
llo fIoliIIa parlicipanls voro nol bound during oscorl lo llo prisons (ollor
llan llroo of llo parlicipanls vlo voro unruIy al llo porl of Asldod and
voro lransporlod lo llo "IIIa" prison)
650
and llo mon and vomon voro
lransporlod soparaloIy.
651

Tlo maloriaI boforo llo Commission indicalos llal llo fIoliIIa
parlicipanls voro imprisonod in opon vings (ollor llan during four daiIy
counls),
652
lloy voro pormillod lo mool vill allornoys and vill llo consuIs
of llo counlrios of lloir cilizonslip (19 allornoys and 45 consuIs onlorod
llo prisons),
653
and lloy voro givon food, porsonaI offocls, lrack suils,
646 |!., al 6.
647 Soo |!., al 45-46, Il slouId bo monlionod llal lloso forly fivo parlicipanls voro askod lo
sign a form according lo vlicl lloy vaivo lloir rigll lo appoaI llo docision lo romovo
llom from llo Slalo of IsraoI.
648 AII prisonors voro lransporlod in air-condilionod bussos, according lo llo oxisling
procoduros in IsraoI, a bus llal is nol air-condilionod is unsuilabIo for uso vlon
lransforring prisonors, soo 1csiimcn c| Priscn Scrticc Ccmm.n!cr, supr. nolo 637, al 12-13.
649 Id., al 3-5.
651 |!.
652 |!., al 27.
653 |!., al 26, Il slouId bo monlionod llal aflor llo ovonl cIaims voro mado llal llo parlicipanls
of llo fIoliIIa voro doIiboraloIy kopl from mooling vill lloir Iavyors. Tlo maloriaI
boforo llo Commission (vlicl incIudos, among ollor llings, maloriaIs roIaling lo llo
proparalions mado lovards llo rocoplion of llo fIoliIIa parlicipanls, llo Irison Sorvico
inquiry vlicl vas conduclod aflorvards), indicalos llal lloro vas no doIiboralo inlonlion
lo provonl llo fIoliIIa parlicipanls from mooling vill Iavyors. Al llo samo limo, lloro
voro corlainIy moro llan a fov difficuIlios in llis conloxl dorivod from llo slorl poriod
of llo fIoliIIa parlicipanls slay in IsraoI, llo Iargo numbor of parlicipanls, and llo facl
llal lloy voro loId in opon coIIs and llo IIIa prison slaff lad difficuIly Iocaling llom
vlon lloy voro askod lo allond various moolings. In llis conloxl soo llo Supromo Courls
vordicl in HC} 4169/10, 4193/10, 4220/10, 4221/10, 4240/10, 4243/10 Cc|cn t. Dc|cnsc
Minisicr (sliII unpubIislod, }un. 2, 2010), al para. 6 |loroinaflor Cc|cn mallorj, Soo aIso
1csiimcn c| Priscn Scrticc Ccmm.n!cr, supr. nolo 637, al 22-23.
and undorgarmonls.
654
AIso, mosl of llo parlicipanls mol vill a sociaI
vorkor upon lloir arrivaI al llo prison (spociaI inslruclions voro givon
rogarding ono fIoliIIa parlicipanl vlo vas idonlifiod as boing in a slalo of
omolionaI dislross).
655
ApparonlIy, during llo dolonlion plaso, forco vas
usod during onIy ono incidonl: vliIo ono of llo fIoliIIa parlicipanls vas
in llo "IIIa" prison, slo bIockod llo pall of llo loam commandor from
llo "Naclslon" unil, and slo rofusod lo movo from llo Iocalion. Will llo
approvaI of llo dopuly commandor of llo "Naclslon" unil, llo fIoliIIa
parlicipanl vas plysicaIIy movod. In rosponso, llo dolainoo puslod llo
loam commandor, scralclod lor on llo faco, and loro lor slirl. During llo
incidonl, forco vas usod in ordor lo conlroI llo parlicipanl.
656
154. Iursuanl lo llo diroclivo of llo Allornoy GonoraI on May 31, 2010,
llo IsraoIi poIico oponod an invosligalion againsl llo fIoliIIa parlicipanls,
on suspicion of allacking IDI soIdiors vlo look conlroI of llo M.ti
M.rm.r., and ollor offonsos. On }uno 1, 2010, llo Unilod Nalions Socurily
CounciI approvod a prosidonliaI slalomonl donouncing IsraoI's aclions
and caIIod for llo roIoaso of llo vossoIs and llo dolainoos, as voII as llo
lransfor of llo corpsos lo Turkoy.
657
On llo samo day, llo MinisloriaI
Commilloo for NalionaI Socurily Mallors mol and rocommondod, for
dipIomalic roasons, lo roIoaso aII of llo fIoliIIa parlicipanls and nol
lo pursuo llo IogaI procoodings againsl llom.
658
Aflor lo undorlook
consuIlalions on llis mallor, llo Allornoy GonoraI adoplod llis posilion,
and on }uno 2, 2010, lo issuod a vrillon ordor pormilling llo immodialo
doporlalion from IsraoI of "llo foroignors vlo arrivod on llo fIoliIIa vlo
aro suspoclod of commilling criminaI offonsos", on llo grounds vlicl lo
sol forll.
659
Tlroo polilions vlicl voro submillod lo llo Supromo Courl
againsl llo docision of llo Allornoy GonoraI voro rojoclod.
660
Tloroforo,
llo fIoliIIa parlicipanls voro lransforrod from llo prison faciIilios lo Bon-
655 |!., al 26.
656 |!., al 23-24.
657 Soo 1|c G.z. I|cii||. - rcspcnsc up!.ic 4 (compiIalion by Ioroign Minislry, Conlor for
IoIilicaI Rosoarcl, 1.6.2010), al 1, 4-5, markod by llo Commission as oxlibil 59.
658 Docision B/39 by llo Minislors Commilloo on Mallors of NalionaI Socurily |sr.c|s
Pc|ic Rcg.r!ing i|c G.z. Sirip (Mi|ii.r .n! Citi|i.n (Sop. 19, 2007) |loroinaflor Minisicrs
Ccmmiiicc cn M.iicrs c| N.iicn.| Sccurii Dccisicn c| 1.6.2010j, llo foIdor conlaining llo
oxlibil vas markod by llo Commission as foIdor 4.
659 Soo docision of Govornmonl Allornoy GonoraI (}un. 2, 2010).
660 Soo llo Cc|cn mallor, supr. nolo 653, in llo vordicl llo llroo polilions (HC} 4221/10
submillod by YokulioI Bon Yaakov, HC} caso 4240/10 submillod by llo S|ur.i H.!in
Organizalion, and HC} caso 4243/10 submillod by llo A|m.gcr organizalion for Viclims
of Torrorism) vlo askod lo provonl llo roIoaso of llo foroign parlicipanls of llo fIoliIIa
voro rojoclod aflor llo Supromo Courl dolorminod llal llo docision lo roIoaso llom vas
voII villin llo bounds of llo Allornoy GonoraIs discrolion.
Gurion airporl, from vloro lloy voro fIovn lo llo counlrios from vlicl
lloy lad doparlod on llo fIoliIIa. Tloroforo, llo duralion of llo fIoliIIa
parlicipanls' slay in llo prison faciIilios of llo Irison Sorvico did nol
oxcood forly-oigll lours.
661
Il slouId bo nolod llal aflor llo fIoliIIa parlicipanls voro lransforrod
lo Bon-Gurion airporl, aboul 40 fIoliIIa parlicipanls vlo lad mol vill
Turkisl dipIomalic roprosonlalivos al Bon-Gurion airporl bogan lo cIasl
vill poIico forcos in llo passongor laII of llo airporl. Tlo confronlalion
vas documonlod by sovoraI journaIisls vlo camo lo Bon-Gurion airporl
lo documonl llo doporlalion of llo parlicipanls.
662
Tlo maloriaI providod
lo llo Commission indicalos llal, in ordor lo conlroI llo oulbroak, llo
IsraoIi poIico ongagod approximaloIy lvonly poIico officors vlo usod
lloir lands and landcuffs.
663
Tlo maloriaI furllor indicalos llal in ono
inslanco, a cIub vas usod againsl a dislurbanco dofinod by llo IsraoIi
poIico as an "oxcoplionaI dislurbanco". As a rosuIl of llo ovonl, six of lloso
vlo voro disordorIy roquirod modicaI lroalmonl.
664
!"# D#%#+6#1 +'1 )"# F&7'1#1
155. 1|c !ccc.sc!. As slalod, upon compIolion of llo lakoovor oporalion
of llo M.ti M.rm.r., lloro voro, rogrollabIy, nino docoasod fIoliIIa
parlicipanls. Tloir bodios voro lransforrod lo llo Abu Kabir Ioronsic
Inslilulo for a palloIogicaI oxaminalion. Hovovor, on }uno 2, 2010,
Turkoy conlaclod llo Slalo of IsraoI and roquoslod llal IsraoI lransfor llo
bodios lo Turkoy llal day.
665
Tlo noxl day, Turkoy furnislod a vrillon
roquosl llal llo bodios loId by IsraoI bo lransforrod lo Turkoy villoul
aulopsios boing porformod on llom.
666
AIllougl sovoraI aIlornalivos voro
considorod, sucl as incIuding Turkisl palloIogisls during porformanco
661 According lo llo Cliof of Slaffs loslimony llo Iasl passongor Iofl IsraoI on }uI. 6, 2010, soo
llo C|ic| c| Si.||s Opcn Dccr 1csiimcn c| 11.8.2010, supr. nolo 70, al 29.
662 Soo Priscn Scrticc |ntcsiig.iitc Rcpcri, supr. nolo 629, al 24, 30, according lo llo
invosligalion, llo Irison Sorvico vas nol invoIvod in llo ovonl, bul llo riol doIayod
llo paco of accompanying fIoliIIa parlicipanls from llo loIding faciIilios lo Bon Gurion
Airporl.
663 |sr.c| Pc|icc - D.i. Ccmp|ciicn (Doc. 14, 2010), al 1-2, found in foIdor markod by llo
Commission as oxlibil 149.
664 |sr.c| Pc|icc - D.i. Ccmp|ciicn (Doc. 22, 2010), al 1, Id.
665 Soo Iollor from RafaoI Barak, Ioroign Minislry Dopuly Diroclor GonoraI, lo Yossi GaI,
Ioroign Minislry Diroclor GonoraI (}un. 1, 2010), llo foIdor conlaining llo oxlibil vas
markod by llo Commission as foIdor 60, llo Iollor dolaiIs a plono roquosl mado by llo
Turkisl Ambassador lo IsraoI llal llo bodios bo rolurnod llal samo day.
666 Iollor from }uIido Kayilan, dopuly lo llo Turkisl Ambassador lo IsraoI, lo RafaloI Barak,
Ioroign Minislry Dopuly Diroclor GonoraI (}un. 2, 2010), llo foIdor conlaining llo oxlibil
vas markod by llo Commission as foIdor 60.
of llo aulopsy, il vas uIlimaloIy docidod lo lransfor llo bodios lo Turkoy
aflor porforming onIy an oxlornaI oxaminalion.
667
Tlis is llo pIaco lo nolo
llal llo Commission is unabIo lo idonlify llo docoasod by lloir namos.
Tlo findings of llo oxlornaI oxaminalions aro as foIIovs:
668
Body no. 1: BuIIol vounds: lvo in llo abdomon-closl on llo
Iofl sido, ono langonliaI vound on llo Iofl sido of
llo abdomon, on llo back from llo rigll, on llo
rigll oIbov, in llo rigll arm, on llo Iofl land, lvo
on llo Iofl lligl. SuporficiaI Iacoralions on llo faco,
abrasions and scralclos.
Body no. 2: BuIIol vounds: on llo rigll sido of llo load, on
llo rigll sido of llo back of llo nock, on llo rigll
clook, undornoall llo clin, on llo rigll sido of llo
back, on llo Iofl lligl. A buIIol vas paIpalod on llo
Iofl sido of llo closl. Abrasion on llo rigll arm.
Body no. 3: BuIIol vound on llo rigll sido of llo back of llo
nock, lvo buIIol vounds on llo rigll sido of llo
back of llo nock, a buIIol vound on llo rigll sido
of llo abdomon, a buIIol vound on llo rigll sido
of llo Iovor back, a buIIol vound on llo Iofl back-
bullock.
Body no. 4: BuIIol vounds: on llo Iofl broasl, llo Iofl bullock,
llo rigll slouIdor, llo rigll lligl, llo rigll caIf,
lvo in llo Iofl lligl. Subculanoous bIooding on
llo rigll sido of llo foroload. Iacoralions on llo
foroload. Various addilionaI abrasions.
Body no. 5: Tvo buIIol vounds in llo Iofl slouIdor, buIIol
vound in llo rigll sido of llo closl, buIIol vound
in llo rigll slouIdor, buIIol vound in llo rigll
lligl.
667 Soo foIdor 74 of llo Commissions oxlibils. Tlo Slalo of IsraoI las askod lo cIarify vlollor
llo aullorilios in Turkoy vislod llal a palloIogisl on lloir bolaIf vouId accompany llo
procoss in IsraoI, on llis mallor soo Iollor from RafaoI Barak, Ioroign Minislry Dopuly
Diroclor GonoraI, lo Almol Oguz CoIikkoI, llo Turkisl Ambassador lo IsraoI (}un.2, 2010),
in rosponso lo IsraoIs roquosl, lurkoy slalod llal duo lo limo conslrainls il vouId nol bo
abIo lo sond a palloIogisl as slalod, soo Iollor from }uIido Kayilan, dopuly lo llo Turkisl
Ambassador lo IsraoI, lo RafaoI Barak, Ioroign Minislry Dopuly Diroclor GonoraI (}un. 2,
2010), llo foIdor conlaining llo oxlibil vas markod by llo Commission as foIdor 60.
668 Soo P.i|c|cgic.| Rcpcri (opinion by llo NalionaI Conlor for Ioronsic IalloIogy, }un. 1,
2010), llo foIdor conlaining llo oxlibil vas markod by llo Commission as foIdor 74.
Body no. 6: BuIIol vounds in llo foroload and llo back of llo
nock. Abrasion vounds on llo rigll sido of llo
foroload, llo noso, llo rigll knoo.
Body no. 7: BuIIol vounds on llo Iofl sido of llo closl,
subculanoous bIooding on llo back, llo Iofl caIf,
and rigll oIbov joinl.
Body no. 8: BuIIol vounds on llo fronl of llo rigll oar, buIIol
paIpalod undor llo skin of llo lorso on llo Iofl
sido, lvo buIIol vounds on llo rigll sido of llo
back, buIIol vound on llo rigll bullock, various
abrasions.
Body no. 9: BuIIol vounds in llo aroa of llo rigll lompIo/
back of nock, buIIol vound in llo Iofl nippIo, buIIol
vound in llo aroa of llo scaIp-foroload on llo Iofl
sido, buIIol vound on llo faco (noso), buIIol vound
on llo Iofl lorso, buIIol vound on llo rigll sido of
llo back, lvo buIIol vounds in llo Iofl lligl, lvo
buIIol vounds as a rosuIl of llo buIIol passing
llrougl loos four and fivo on llo Iofl fool.
156. 1|c Wcun!c! I|cii||. P.riicip.nis. As slalod abovo, approximaloIy
55 voundod fIoliIIa parlicipanls voro brougll lo lospilaIs in IsraoI. Ton
of llo voundod voro lroalod al llo Claim Sloba ModicaI Conlor al ToI
Haslomor, six of llo voundod voro lroalod al Rambam HospilaI, 14 of
llo voundod voro lroalod al BoiIinson HospilaI, four of llo voundod
voro lroalod al Hadassal Iin Korom HospilaI, and 21 of llo voundod
voro lroalod al BarziIai HospilaI.
669
157. 1|c Wcun!c! |DI Sc|!icrs. As slalod abovo, nino IDI soIdiors voro
voundod during llo lakoovor of llo M.ti M.rm.r.. Al llo Claim Sloba
ModicaI Conlor al ToI Haslomor, four soIdiors voro lroalod (soIdior no.
2, soIdior no. 4, soIdior no. 5, and soIdior no. 7), lvo of vlom lad buIIol
vounds. SoIdior no. 2, vlo lad a buIIol vound in lis abdomon, roquirod
lvo oporalions. SoIdior no. 4 undorvonl an oporalion on lis load. SoIdior
no. 5, vlo lad a buIIol vound in lis Iofl knoo, and lad boon sovoroIy
boalon on lis load and abdomon, vas lospilaIizod for lroalmonl. Al
Rambam HospilaI, llroo soIdiors voro lroalod (soIdior no. 1, soIdior no. 6,
669 31 voundod voro ovacualod by pIano vill Unil 669, 24 voundod voro ovacualod via
llo porl of Asldod, soo 1|c |i|.n! Rcpcri, supr. nolo 402, al 146. Tlo maloriaIs rocoivod
from llo various lospilaIs invoIvod aro found in llo bindor markod as Bindor 147 by llo
Commission.
and soIdior no. 3). SoIdior no. 3, vlo lad boon slabbod in llo abdomon,
undorvonl surgory. SoIdior no. 1 and soIdior no. 6 voro lospilaIizod for
lroalmonl in llo lospilaI. Tvo IDI soIdiors (soIdior no. 9, soIdior no. 11)
voro lroalod al IcliIov HospilaI.
B&6)Q3'%31#') #-#')6
158. AII of llo vossoIs ollor llan llo C|.||cngcr 1 (vlicl Iofl llo pior
vloro il vas anclorod in llo porl of Asldod on }uIy 13, 2010, and is
curronlIy anclorod in llo navaI baso marina in Asldod) Iofl llo Asldod
porl and aro anclorod in llo porl in Haifa.
670

Will rospocl lo llo cargo llal vas on board llo vossoIs, il vas agrood
bolvoon llo Coordinalor of Govornmonl Aclivilios in llo Torrilorios
(loroaflor: COGAT) and llo UN Socrolary GonoraI's onvoy lo llo
MiddIo Iasl, Mr. Roborl Sorry, in accordanco vill COGAT's guidoIinos
on lloso mallors, llal llo lumanilarian suppIios and conslruclion
maloriaIs found on board llo vossoIs vouId bo lransforrod lo llo UN
for uso by ils agoncios in llo Gaza Slrip. Tlo maloriaI furnislod lo llo
Commission indicalos llal, villin llo UN, il vas agrood lo divido llo
suppIios bolvoon llo various agoncios in llo foIIoving mannor: (a) llo
conslruclion maloriaIs - 70 vouId bo lransforrod lo llo Unilod Nalions
RoIiof and Works Agoncy (UNRWA) and 30 vouId bo lransforrod lo llo
Unilod Nalions DovoIopmonl Irogrammo (UNDI), (b) llo ollor suppIios
vouId bo dividod among UNRWA (vlicl las rocoivod llo suppIios and
maloriaIs for llo bonofil of llo popuIalion undor ils caro), llo WHO (llo
WorId HoaIll Organizalion of llo UN, vlicl las rocoivod llo modicaI
and modicaI-roIalod suppIios, incIuding modicinos, vlooIclairs, olc.),
and UNICII (llo Unilod Nalion's CliIdron's Iund, vlicl las rocoivod
suppIios and maloriaIs lo dislribulo lo cliIdron, incIuding cIolling,
loys and backpacks). As of Docombor 26, 2010, 114 lrucks carrying
lumanilarian suppIios from llo fIoliIIa's vossoIs llal aro llo subjocl of llis
roporl lad onlorod llo Gaza Slrip, in coordinalion vill llo UN agoncios,
from among a lolaI of approximaloIy 200 lrucks.
671
670 Tlo M.ti M.rm.r. Iofl Asldod Iorl on 6.6.2010, llo Dofnoy and Boal 8000 Iofl Asldod
Iorl on 11.6.2010, llo Sofia Iofl Asldod Iorl on 6.11.2010, llo Gazzo Iofl Asldod Iorl
on 17.6.2010, soo IIoliIIa lo Gaza of 31/5/2010 (dolaiI compIolion from Tlo Asldod Iorl
Company ITD, 25.11.2010), found in foIdor markod by llo Commission as oxlibil 149.
671 Soo Citi|i.n Pc|ic Rcg.r!ing G.z. Sirip - P.ri A, supr. nolo 52, al 30, soo aIso Appondix
C of Citi|i.n Pc|ic Rcg.r!ing G.z. Sirip - P.ri B, supr. nolo 58, in gonoraI 35 lrucks of
concrolo and oigll lrucks of buiIding iron voro brougll in for sovon UNRWA projocls,
as voII as 71 lrucks carrying an assorlmonl of oquipmonl (molorizod carls, ballorios,
modicaI oquipmonl and modicino, lvo valor dosaIinizalion conlainors, gonoralors, bods,
and moro). Goods nol yol lransforrod and availing coordinalion vill llo UN incIudo: (1)
159. Tlo porsonaI boIongings of llo fIoliIIa parlicipanls voro fIovn
back lo Turkoy vill llo fIoliIIa parlicipanls (aflor laving boon brougll
by navaI officors lo llo "IIIa" prison in Boor Slova, vloro llo prison slaff
rofusod lo rocoivo il bocauso llo fIoliIIa parlicipanls voro in llo procoss of
boing lransforrod lo Bon-Gurion airporl).
672
Iursuanl lo inslruclions of llo
Minislry of Dofonso, 105 suilcasos, vlicl voro rolurnod by Turkoy aflor
lloy voro nol cIaimod, aro boing slorod al llo navy's suppIy baso.
673
Tlo
magnolic modia and llo combal iloms found on llo vossoIs voro rolainod
in IsraoI for furllor invosligalion.
674
Il slouId bo nolod llal, during llo
soarclos of llo vossoIs aflor llo ovonl, addilionaI porsonaI boIongings
voro discovorod (vaIIols and documonls), vlicl voro coIIoclod in six
bags. Tloso iloms voro lransforrod lo llo roprosonlalivo of llo Turkisl
ombassy in IsraoI.
675
Il slouId bo nolod llal in llo prison coIIs in vlicl llo fIoliIIa
parlicipanls voro loId in llo "IIIa" prison, sums of casl voro found in
llo amounl of 3,500 and $4,000. Tloso sums aro curronlIy boing loId in
llo safo of llo IogaI doparlmonl of llo Irison Sorvico (llo Commission
las boon informod llal llo Irison Sorvico conlaclod llo Ioroign Minislry
aboul llis mallor, bul las nol rocoivod any inslruclions rogarding llo
landIing of lloso sums).
676
On Soplombor 15, 2010, llo plolograply oquipmonl vlicl vas
coIIoclod in llis ovonl vas lransforrod lo a roprosonlalivo of llo journaIisls,
Mr. Danny Zakon, llo clairman of llo }ournaIisls Associalion in IsraoI.
677
rav maloriaIs for UNDI projocls and for lvo UNRWA projocls, (2) llroo X-ray maclinos
vlicl llo UN rofusos lo bring inlo llo slrip cIaiming lloro is no nood for usod oquipmonl
villoul varranly, (3) lransporlabIo slrucluros (caravans) and llo maloriaIs lo conslrucl
llom - as of Doc. 26, 2010 llo UN las nol boon abIo lo rocoivo inslruclions on lov lo
conslrucl llo lransporlabIo slrucluros. Tlis issuo slouId bo rosoIvod by llo UN in llo noxl
fov vooks.
672 Soo |DI ccmp|ciicn rcspcnsc c| 15.11.2010, supr. nolo 400, al para. N.
673 |!., for a Iisl of llo oquipmonl slorod al llo navaI baso soo aIso appondix I, |!.
674 Soo Ccmp|cmcni.r |n|crm.iicn Rcg.r!ing i|c M.gnciic Mc!i. C.piurc! During Opcr.iicn
Win!s c| Hc.tcn (Doc. 23, 2010), markod by llo Commission as oxlibil 158.
675 Soo |DI ccmp|ciicn rcspcnsc c| 15.11.2010, supr. nolo 400, al para. N, soo aIso llo documonl
signod by llo Turkisl roprosonlalivo approving llo rocoplion of llo oquipmonl, appondix
D, |!.
676 Soo Tlo Turkisl IIoliIIa - Casl Curroncy Iound in llo Irison Sorvicos Iossossion (Irison
Sorvico Dala CompIolion, Nov. 16, 2010), found in foIdor markod by llo Commission as
oxlibil 149.
677 During llo landing ovor of llo oquipmonl lloro vas an oxlibilion of llo oquipmonl
and lloro vas aIso a ropoalod oxaminalion and plysicaI counl and comparison lo llo
calaIoguos proparod, soo Iollor from IogislicaI Oporalions and Assols Brancl lo llo IubIic
Commission lo Ixamino llo Marilimo Incidonl of May 31, 2010 (Sop. 19, 2010), found in
foIdor markod by llo Commission as oxlibil 165.
160. As slalod, aflor llo ovonl, llo MiIilary IoIico Invosligalions inilialod
sovon criminaI invosligalions againsl 16 suspocls for various incidonls
of llofl of proporly boIonging lo llo fIoliIIa parlicipanls by IDI soIdiors
vlo lad conlacl vill llo aforosaid proporly.
678
Al llo limo of vriling llis
roporl, llroo of llo invosligalions lavo Iod lo indiclmonls againsl four
dofondanls and llo conducling of criminaI lriaIs (llo procoodings in ono
lavo ovon concIudod). Tlo dolaiIs of lloso invosligalions aro as foIIovs:
a. MiIilary IoIico CriminaI Invosligalion Division, conlraI rogion, fiIo
no. 67/10 - Tlis caso concorns llo llofl of a nov Iaplop compulor,
lvo camora Ionsos and a compass vlicl voro soizod on llo M.ti
M.rm.r., and onloring inlo a conspiracy lo commil llo offonsos
of llofl of llo oquipmonl vlicl vas soizod on llo M.ti M.rm.r..
Tlo invosligalion Iod lo an indiclmonl vlicl vas submillod in llo
miIilary courl againsl a rocruils squad commandor vill llo rank
of corporaI, vlo boardod llo M.ti M.rm.r. aflor il vas anclorod
in llo porl of Asldod and conduclod soarclos aboard il. Tlo
dofondanl vas clargod vill llofl by a pubIic sorvanl, pursuanl
lo Soclion 390 of llo IonaI Iav, 5737-1977, and conspiracy lo
commil a crimo, pursuanl lo Soclion 499(a)(1) of llo forogoing
Iav (fiIo no. 430/10). Aflor llo indiclmonl vas submillod and as
parl of llo pIoa bargain, llo conspiracy clargo vas dismissod. On
Oclobor 18, 2010, 2010, llo miIilary courl sonloncod llo accusod
lo llo foIIoving: fivo monlls in prison (Ioss llo 39 days during
vlicl llo dofondanl lad aIroady boon imprisonod), a fivo monlls
suspondod sonlonco for llroo yoars, llo maximum fino possibIo
pursuanl lo Soclion 29 of llo MiIilary }uslico Iav, 5715-1955 (a sum
of NIS 700 or llroo days imprisonmonl in oxclango), domolion lo
llo rank of privalo.
679
b. MiIilary IoIico CriminaI Invosligalion Division, conlraI rogion,
fiIo no. 64/10 and SpociaI Invosligalions, norllorn rogion, fiIo
no. 10/03 - Tlis caso concorns llo llofl of four Iaplop compulors
vill a lolaI oslimalod markol vaIuo of approximaloIy NIS 10,000,
and lloir saIo lo anollor IDI soIdior in considoralion of a lolaI
sum of NIS 4,800. Tlo invosligalion Iod lo an indiclmonl vlicl
678 Soo |DI Rcspcnsc |cr Ccmp|ciicn Rcucsi (Doc. 7, 2010), llo foIdor conlaining llo oxlibil
vas markod by llo Commission as foIdor 148 |loroinaflor |DI Ccmp|ciicn Rcspcnsc c|
.12.2010j, |DI Rcspcnsc |cr Ccmp|ciicn Rcucsi (Doc. 15, 2010), llo foIdor conlaining llo
oxlibil vas markod by llo Commission as foIdor 154 |loroinaflor |DI Ccmp|ciicn Rcspcnsc
c| 15.12.2010j.
679 Indiclmonl and miIilary courl prolocoI in caso GOC (dislricl) 430/10, |DI ccmp|ciicn
rcspcnsc c| 15.11.2010, supr. nolo 400.
vas submillod lo llo miIilary courl againsl llo rocruils pIaloon
commandor vill llo rank of socond Iioulonanl, and a sorgoanl in
llo rocruils pIaloon, vlo boardod llo M.ti M.rm.r. aflor il vas
anclorod in llo porl of Asldod and conduclod soarclos on il. Tlo
lvo dofondanls voro clargod vill llo offonso of llofl by a pubIic
sorvanl, pursuanl lo Soclion 390 of llo IonaI Iav, 5737-1977, and
unbocoming bolavior pursuanl lo Soclion 130 of llo MiIilary
}uslico Iav, 5715-1955.
c. MiIilary IoIico CriminaI Invosligalion Division, conlraI rogion, fiIo
no. 66/10 - Tlis caso concorns llo llofl of a Iaplop compulor and
compulor gamo consoIo and conspiring lo sloaI Iaplop compulors
vlicl voro soizod from llo passongors of llo M.ti M.rm.r..
Tlo invosligalion Iod lo an indiclmonl vlicl vas submillod in
llo miIilary courl againsl a rocruils squad commandor vill llo
rank of corporaI, vlo boardod llo M.ti M.rm.r. aflor il vas
anclorod in llo porl of Asldod and conduclod soarclos on il.
Tlo dofondanl vas clargod vill llo offonso of llofl by a pubIic
sorvanl, pursuanl lo Soclion 390 of llo IonaI Iav, 5737-1977, and
conspiracy lo commil a crimo, pursuanl lo Soclion 499(a)(1) of llo
forogoing Iav.
d. MiIilary IoIico Invosligalion, conlraI rogion, fiIo nos. 63/10, 65/10,
68/10 and SpociaI Invosligalions, norllorn rogion, fiIo no. 3/10
- Tloso casos concorn llo suspoclod offonsos of llofl by a pubIic
sorvanl and llo possossion of sloIon proporly by sovon soIdiors,
llo offonsos of buying sloIon proporly, and llo possossion of sloIon
proporly by fivo addilionaI soIdiors (a lolaI of 12 soIdiors). Tloso
casos concorn llo suspoclod llofls of porlabIo compulors, vlicl
voro on llo M.ti M.rm.r., by sovoraI soIdiors vlo boardod llo
vossoI and soarclod il aflor llo lakoovor vas compIolod, and lloir
saIo lo ollor soIdiors. Tlo criminaI invosligalion of lloso casos las
concIudod and llo fiIos voro lransforrod for roviov and docision
by llo miIilary prosoculor. Tlo docision of llo miIilary prosoculor
aboul lloso casos is ponding.
In addilion lo llo forogoing, on Docombor 15, 2010, llo IDI
informod llo Commission llal llo miIilary prosoculor las inslruclod llo
MiIilary IoIico Invosligalions lo inilialo anollor invosligalion, concorning
llo suspoclod iIIogaI uso of llo crodil card of an IlaIian cilizon vlo vas
on board llo M.ti M.rm.r.. A compIainl vas lransmillod lo llo IDI by
llo IlaIian ambassador lo IsraoI on bolaIf of llo IlaIian cilizon, vloso
vaIIol vas confiscalod from lim aflor llo lakoovor of llo vossoI vas
compIolod. Upon llo compIainanl's rolurn lo lis counlry, lo cIaims lo
lavo discovorod llal unaullorizod uso lad boon mado of lis crodil card,
vlicl lad boon in lis vaIIol vlon il vas confiscalod.
680

The FIntiIIa Participants and Their Activities:
AdditinnaI DetaiIs
161. Tlo Commission vas aIso roquoslod lo oxamino "llo aclivilios
vlicl voro undorlakon by llo fIoliIIa organizors and ils parlicipanls, and
lloir idonlily," pursuanl lo soclion 4.c of llo Govornmonl's docision on
}uno 14, 2010. Tloso subjocls aro indood inlograIIy roIalod lo llo mallors
vlicl lavo boon doscribod abovo and vlicl viII bo anaIyzod boIov.
NovorlloIoss, llo Commission find il approprialo lo incIudo addilionaI
dolaiIs al llis poinl in llo roporl. As viII bo apparonl, llis informalion
concorning llo idonlily of llo fIoliIIa's parlicipanls and ils organizors
and llo aclions lloy undorlook bocamo knovn onIy aflor llo ovonls lad
lakon pIaco and aflor compIolion of llo miIilary oporalion. Iirsl, vo viII
provido dolaiIs aboul llo idonlily of llo fIoliIIa's organizors. Wo viII llon
discuss corlain dolaiIs concorning llo idonlily of llo fIoliIIa's parlicipanls.
IinaIIy, vo viII doscribo llo advanco proparalions undorlakon by somo
of llo fIoliIIa parlicipanls in anlicipalion of llo confronlalion vill IDI
soIdiors, as rovoaIod by llo documonls and loslimony oblainod by llo
Commission.
The Organizers nI the FIntiIIa
162. Tlo fIoliIIa ilsoIf vas organizod by a coaIilion comprisod of
a numbor of organizalions, of vlicl llo Ioading organizalion vas llo
IHH.
681
Tlo IHH organizalion is, as slalod, a lumanilarian organizalion
vill a radicaI-IsIamic orionlalion, vlicl vas oslabIislod in 1992 and
vlicl vas formaIIy rogislorod in IslanbuI in 1995.
682
Tlo organizalion
is loadod by BuIonl YiIdirim. Tlo organizalion conducls a broad rango
680 Soo |DI Ccmp|ciicn Rcspcnsc c| 15.12.2010, supr. nolo 678. In llo margins, il slouId bo
monlionod llal llo Commission las, by coincidonco, Ioarnod of a loIovision novs slory
rogarding llo suspoclod llofl of oquipmonl on llo vossoIs parlicipaling in llo fIoliIIa
by somo of llo Asldod Iorl vorkors, bul llo Commission couId nol Iocalo addilionaI
informalion in llis conloxl.
681 Soo |HH I|cii||. C.mp.ign Summcr, supr. nolo 209.
682 ||CC rcpcri (May 27, 2010), supra nolo 83, al 1, somo of lloso dolaiIs, parlicuIarIy llo
gonoraI dolaiIs roIaling lo llo IHH organizalion and ils aclivilios, voro knovn in advanco
of llo fIoliIIa incidonl, al llo samo limo, concrolo dolaiIs rogarding llo scopo of llo IHH
organizalions invoIvomonl vill llo pIanning of llo fIoliIIa, as voII as concrolo dolaiIs
rogarding llo parlicipanls llomsoIvos, voro onIy found oul Ialor.
of lumanilarian aclivilios, and, villin llis framovork, il oporalos in
dislrossod rogions in llo aroas of food doIivorios, assislanco projocls for
orplans, oslabIisling oducalionaI faciIilios, lospilaIs and modicaI cIinics,
programs for vocalionaI oducalion, suppIying modicinos, buiIding
mosquos, and provonling luman riglls vioIalions llrougloul llo vorId.
683

Tlo organizalion aIso oporalos in various Iuropoan counlrios llrougl
ils branclos.
684
Hovovor, aIongsido ils lumanilarian aclivilios, llo IHH
organizalion providos supporl lo radicaI-IsIamic and anli-Woslorn
lorrorisl organizalions.
685
Tlo organizalion aIso supporls llo Hamas and
doos nol concoaI llo lios bolvoon llo organizalions.
686
Tlo IICC roporl
dalod May 27, 2010, slalos, inicr .|i., llal llo IHH organizalion is a mombor
of llo "Union of Good" coaIilion, and providos assislanco lo llo Hamas by
organizing pubIic supporl conforoncos in Turkoy in vlicl sonior Hamas
officiaIs look parl, by providing significanl amounls of funding lo Hamas
inslilulions in llo Wosl Bank (incIuding associalions vlicl lavo boon
bannod in IsraoI) and oporaling vidosproad aclivilios in llo Gaza Slrip.
687

Tlo organizalion las ovon oslabIislod a brancl in llo Gaza Slrip, vlicl
is loadod by Mulammad Kaya. In }anuary 2008, during a mooling of llo
organizalion's doIogalion vill Almod Balar a sonior Hamas aclivisl vlo
sorvos as llo dopuly spoakor of llo parIiamonl of llo Hamas govornmonl
in llo Gaza Slrip, llo organizalion prosonlod llo oxlonl of llo assislanco il
providos lo llo Gaza Slrip, and aIso announcod llal il vouId doubIo llis
supporl in llo fuluro. In }anuary 2009, llo load of llo IHH organizalion,
BuIonl YiIdirim, mol vill KlaIod MaslaaI, llo load of llo Hamas poIilicaI
buroau in Damascus. Al llis mooling, MaslaaI llankod YiIdirim for llo
supporl llal llo IHH organizalion givos lo llo Hamas.
688
In }anuary 2010,
llo Ioador of llo IHH organizalion visilod llo Gaza Slrip and ovon mol
vill IsmaiI Haniyol, llo Hamas primo minislor in llo Gaza Slrip.
689
683 ||CC rcpcri (May 26, 2010), |!., al 1-2.
684 |!.
685 In llis conloxl soo ||CC rcpcri (Sop. 20, 2010), |!., al 2, vlicl doscribos an inlorviov vill an
Iranian invosligalor namod Yazdan Karimi lo llo Iranian novs agoncy Iars rogarding llo
IHH organizalion. In llo inlorviov, Karimi slalos llal llo IHH organizalion vas foundod
in 1992 by Turkoys Mujalidin (}ilad varriors), vloro ils immodialo goaI vas lo assisl
MusIims figlling in Bosnia-Horzogovina and ollor rogions. Al llal limo llo Turkisl
Mujalidin askod for llo assislanco of llo Rod Crosconl in ordor lo provido aid lo lloso
injurod by llo var in Bosnia bul lloir roquosl vas doniod. Tloroforo, according lo Karimi,
llo IHH docidod lo oslabIisl ilsoIf as an organizalion offoring aid lo MusIim nalions in
combal zonos vlicl vouId aIso aid ollor poor and vuInorabIo groups llrougloul various
rogions of llo vorId.
686 ||CC rcpcri (May 27, 2010), |!., al 2-3.
687 |!.
688 |!., soo aIso 1|c Spiiiccn. Vit. P.|csiin., M.|.i|ir .n! |HH, vvv.spilloon.org/
arclivos/4168 (2009).
689 Soo ||CC rcpcri (May 27, 2010), supr. nolo 83, al 3, soo aIso VoIfocr: Gazzo'do Gz Yaarlan
In 2008, Minislor of Dofonso Ilud Barak docIarod llal 36
organizalions, incIuding llo IHH organizalion, vlicl aro mombors of llo
"Union of Good" coaIilion, an umbroIIa organizalion of ovor 50 IsIamic
foundalions llrougloul llo vorId and vlicl lransfors funds, inicr .|i., lo
llo Hamas organizalion, voro "prolibilod associalions".
690
In Novombor
2009, llo IHH organizalion sonl an aclivisl on ils bolaIf, Mr. Izzal Slalin,
lo llo Wosl Bank in ordor lo oslabIisl anollor brancl of llo organizalion
lloro. In llo conloxl of lis aclivilios, Slalin raisod lons of llousands of
doIIars for lvo Ioading Hamas associalions oporaling in llo Wosl Bank.
691

Slalin vas dolainod for invosligalion by llo IsraoIi socurily forcos in
ApriI 2010 on suspicion of financing lorror and supporling llo Hamas
organizalion, and lo vas doporlod from IsraoI, upon llo concIusion of llo
invosligalion, al llo roquosl of Turkisl officiaIs. Il is furllor nolod llal on
}uIy 12, 2010, llo Gorman govornmonl aIso docIarod llo IHH organizalion
lo bo an "prolibilod organizalion" bocauso of ils oconomic assislanco and
supporl lo llo Hamas, and in offocl oulIavod il llrougloul Gormany.
692

In roconl monlls, an Amorican oxaminalion is boing conduclod lo
polonliaIIy docIaro llo IHH organizalion as an organizalion llal financos
lorror, i.o., an organizalion incIudod on llo "bIack Iisls" of llo U.S. Troasury
Doparlmonl lovards vlicl oconomic sanclions can bo imposod.
693
Il slouId aIso bo nolod llal llo IICC roporl dalod May 27, 2010, slalos
llal in llo pasl, llo IHH organizalion mainlainod conlacls vill gIobaI
}ilad oIomonls, llrougl vlicl il assislod lorrorisl coIIs in Bosnia, Syria,
Iraq, Afglanislan and Cloclnya, mainIy by giving IogislicaI supporl for
lransforring voapons and funding.
694
Hovovor, llo IICC roporl nolod
Buyuk BuIuma (Vidoo-Iolo), vvv.voIfocr.com/gazza-do-goz-yasarlan-buIusma-vidoo-
folo-1408-labori.llmI (2010).
690 DocIaralion 5822 by Dofonso Minislor Dcc|.r.iicn c| Un|.u|u| Org.niz.iicn - Unicn c| Gcc!
3521 (May 26, 2008) vvv.mod.gov.iI/pagos/gonoraI/pdfs/loror.pdf, il slouId aIso bo
monlionod llal in May 2008 llo Unilod Slalos officiaIIy docIarod llo Union of Good lo bo
an organizalion sponsoring lorrorism and as sucl il vas incIudod in llo bIack Iisl by llo
Troasury Minislry in Waslinglon D.C., found in llo foIdor markod by llo Commission as
oxlibil 149.
691 Hobron IsIamic Clarily Socioly and AI-Tadlamun organizalion in NabIus, soo ||CC rcpcri
(May 27, 2010), supr. nolo 83, al 4.
692 Soo llo slalomonl mado by llo Gorman Minislor of llo Inlorior do Maiziro, Ccmp|ciicn c|
Rcuirc! I.cis |rcm i|c Icrcign O||icc 1 (dala compIolion by llo Ioroign Minislry, Nov. 22,
2010), in foIdor markod by llo Commission as oxlibil 149: Tlo IHH offors knoving and
focusod supporl lo organizalions diroclIy Iinkod lo Hamas |.j and llus onabIos Hamas
lo aIIocalo moro financiaI rosourcos lo fund ils lorrorisl aclivilios. Tlo IHH llus Ionds
supporl lo llo incroaso of vioIonco and lorrorism in llo IaIoslinian Aullorilys lorrilorios.
Tlougl vo aro doaIing vill lvo soparalo branclos of llo organizalion lloro sooms lo bo
a connoclion bolvoon llo Gorman brancl and llo Turkisl brancl.
693 |!., al 2.
694 ||CC rcpcri (May 27, 2010), supr. nolo 83, al 5-8, Danisl Inslilulo for InlornalionaI Sludios,
llal il did nol possoss updalod informalion rogarding llo aforosaid Iinks
of llo organizalion.
695
In lis cIosod loslimony, llo load of llo Mossad
loslifiod llal llo Mossad's assossmonl vas llal somo of llo funds raisod
by llo IHH organizalion voro providod lo llo IsIamic }ilad.
696
Tlo IICC roporl dalod }uno 20, 2010 impIios llal lloro is a connoclion
bolvoon llo IHH organizalion and llo govornmonl of Turkoy. Tlo Ioador
of llo organizalion, YiIdirim, onjoys cIoso roIalionslips vill llo mosl
sonior mombors of llo Turkisl govornmonl, incIuding llo Turkisl Irimo
Minislor, Rocop Tayyip Irdogan.
697
Il slouId bo nolod in llis conloxl llal
llo prolocoI of a mooling loId on May 16, 2010, among roprosonlalivos
of llo Ioading organizalions llal parlicipalod in llo fIoliIIa and sovoraI
caplains of vossoIs pIanning lo join llo fIoliIIa (loroaflor: prntncnI nI the
IIntiIIa Ieadership meeting), vlicl vas lakon from llo compulor of ono
of llo fIoliIIa parlicipanls, indicalos llal llo IHH dopuly prosidonl, Yavuz
an indopondonl rosoarcl inslilulo vlicl doaIs vill inlordiscipIinary rosoarcl inlo
inlornalionaI issuos, in 2006 sludy prosonlod llo organizalions connoclions vill llo AI
Qaida organizalion, soo, Ivan I .KolImann, 1|c Rc|c c| |s|.mic C|.riiics in |nicrn.iicn.|
1crrcrisi Rccruiimcni .n! Iin.ncing, E%-"1/ "-1$"$B$, ;*& 5-$,&-%$"*-%# A$B3",1,
(2006), .t.i|.o|c .i vvv.diis.dk/graplics/IubIicalions/WI2006/DIIS20WI202006-7.
vob.pdf.
695 Tlis sludy, vlicl vas conduclod by sonior Amorican lorrorism rosoarclor, Dr. Ivan
KolIman and doaIl vill llo invoIvomonl of clarily organizalions in assisling lorrorism,
monlionod among ollor facls llal in Docombor 1997 llo Turkisl aullorilios Iaunclod
an invosligalion rogarding llo IHH organizalion foIIoving a cIaim llal sonior mombors
of llo organizalion purclasod aulomalic voapons from oxlromisl IsIamic organizalions.
IoIIoving llis lloro vas a raid on llo organizalions offico in IslanbuI, aclivisls voro
arroslod and voapons and oxpIosivos voro found aIong vill inslruclion on lov lo mako
bombs, a fIag vill a jiladisl mossago, and various documonls vlicl rovoaI llal llo
mombors of llo organizalion pIannod lo lako parl in jiladisl aclivilios in Afglanislan,
Bosnia, and Cloclnya, |!., al 10-11. Tlo rosoarcl aIso quolos a roporl composod by Ironcl
inloIIigonco vlicl slalos llal llo Ioador of llo organizalion, BuIonl YiIdirim, las diroclIy
aclod in llo pasl lo rocruil formor mombors of llo miIilary lo jiladisl aclivily. Tlo roporl
aIso monlions llal a numbor of aclivisls voro sonl by llo IHH lo combal zonos in IsIamic
counlrios vill llo goaI of oblaining combal oxporionco and llal llo IHH organizalion
providod MusIim combalanls in lloso counlrios vill financiaI aid, voapons, and
oxpIosivos. Tlo rosoarcl aIso monlions llal an oxaminalion of llo plono caIIs conduclod
by llo IHH aclivisls in IslanbuI in 1996 rovoaIs ropoalod inloraclions vill an AI Qaoda
losloI in MiIan IlaIy as voII as vill AIgorian lorrorisls acling in Iuropo, incIuding a sonior
mombor of AI Qaoda namod Abu MaaIi (AbdoIkador Mokllari) vlo vas aclivo in Bosnia.
Il vas aIso monlionod llal foIIoving llo Amorican invasion of Iraq in 2003 YiIdirim and
llo IHH organizalion sorvod a roIo in anli-voslorn incilomonl among Turkisl MusIims,
incIuding prolosls, marclos, and domonslralions.
IICC repcri (May 27, 2010), supr. nolo 83, al 5. Rogarding llo IHH organizalions Iinks lo
organizalions Iinkod lo AI Qaoda soo aIso Z,%-N6*B"1 L&B7B",&,F :, `B, Z, =_%" !"#
!% &'() (Robert LaIIoat ed., 2009).
696 Transcripl of sossion no. 8 "Toslimony of Mossad Hoad" (Sop. 14, 2010), al 20.
697 ||CC rcpcri (}un. 20, 2010), supr. nolo 83, al 2.
Dodo, slalod llal llo Irimo Minislor of Turkoy and sovoraI ollor minislors
lad roconlIy bogun oxprossing supporl for llo fIoliIIa:
"Govornmonl did nol announco oponIy supporl for mission al
firsl, bul Iasl fov days. Golling dirocl supporl from IM and ollor
minislors. During I2I discussions, oponIy said llal if vo lavo
any difficuIlios, gov viII oxlond vlal supporl lloy can. During
Doc. Iand convoy, aIllougl gov didn'l announco supporl,
lloy providod, nol onIy lo Turkisl, bul lo aII vlo voro on llo
mission."
698
As slalod, from vlal is knovn, llo IHH organizalion vas ono
of llo Ioading organizalions vlicl look parl in organizing llo fIoliIIa
llal is llo subjocl of llis roporl. Tlo IHH organizalion ovns llo M.ti
M.rm.r. and llo G.zzc slip.
699
According lo llo IICC roporl from May
27, 2010, during llo monlls procoding llo doparluro of llo fIoliIIa, llo
organizalion assislod llo Minislry of Transporlalion and llo Minislry
of IubIic Works of llo Hamas adminislralion lo undorlako projocls in
llo Gaza Slrip in ordor lo proparo llo porl lo rocoivo llo vossoIs laking
parl in llo fIoliIIa.
700
During llo poIico invosligalions conduclod aflor llo
ovonl, somo of llo fIoliIIa parlicipanls slalod llal llo IHH organizalion
vas bolind llo organizing of llo fIoliIIa
701
and llal lloy llomsoIvos aro
aclivisls in llo organizalion (somo of llom ovon rocoivo saIarios from
698 Soo |HH I|cii||. C.mp.ign Summcr, supr. nolo 209, il slouId aIso bo monlionod llal
Amir Akan, a crov mombor on board llo Gazzo vlicl parlicipalod in llo fIoliIIa aIong
vill llo Marmara, cIaimod in lis invosligalion by MiIilary InloIIigonco llal llo Turkisl
govornmonl approvod llo slips doparluro lovards Gaza. Duo lo llis facl lo foIl roIalivoIy
safo during llo fIoliIIa, soo arlicIo 03/06/10/821/5062, Mi|ii.r |nic||igcncc Rcpcris, supr.
nolo 491.
699 In llo Marmaras rogislralion corlificalo, vlicl vas issuod on May 19, 2010, llo IHH
organizalion (Insan Hak vo HurriyolIori vo Insani Yardim Vakfi - Turkoy) appoars as
llo ovnor, soo IrovisionaI Rogislralion Corlificalo D/RG/0333/UAI (May 19, 2010),
llo foIdor conlaining llo oxlibil vas markod as foIdor 92 by llo Commission, Iikoviso,
llo Gazzos rogislralion corlificalo, vlicl vas issuod on Apr. 1, 2010, soo Corlificalo of
Rogislry DM10GS0143Q254937 (Apr. 1, 2010), llo foIdor conlaining llo oxlibil vas markod
as foIdor 93 by llo Commission, llo invosligalion of somo of llo fIoliIIas parlicipanls,
mombors of llo IHH, by llo IDIs invosligalivo unil, aIso rovoaIs llal aII llo vossoIs voro
purclasod by llo organizalion, soo roporl of llo invosligalion of IsmaiI YaImoz, arlicIo
03/06/10/895/5026, Mi|ii.r |nic||igcncc Rcpcris, supr. nolo 491.
700 ||CC rcpcri (May 27, 2010), supr. nolo 83, al 9.
701 In lolaI 41 parlicipanls of llo fIoliIIa on board llo Marmara voro invosligalod, of vlicl 13
monlionod llo connoclion bolvoon llo fIoliIIa and llo IHH organizalion, llis connoclion
aIso camo up in llo invosligalions of aboul 105 fIoliIIa parlicipanls conduclod by llo IDI
invosligalivo unil bolvoon llo dalos May 31, 2010 and }un. 3, 2010.
il),
702
or llal lloy lad joinod llo fIoliIIa al llo roquosl of llo organizalion.
703

702 Soo for oxampIo Mr. Takir Iurdnacls slalomonls lo llo poIico, according lo vlicl lo
is an ompIoyoo of llo organizalion , suspocl 18 slalomonl, Sc|!icrs, Dccicrs, .n! Suspccis
Si.icmcnis (}un. 1, 2010), llo foIdor conlaining llo oxlibil vas markod as foIdor 71 by
llo Commission |loroinaflor Sc|!icrs, Dccicrs, .n! Suspccis Pc|icc Si.icmcnisj, suspocl 18s
slalomonl, Sc|!icrs, Dccicrs, .n! Suspccis Si.icmcnis (}un. 2, 2010) |!., soo aIso llo roporl of
Mulassan Ingins invosligalion, vloroin lo admillod llal lo is an IHH aclivisl, arlicIo
03/06/10/825/5090 Mi|ii.r |nic||igcncc Rcpcris, supr. nolo 491, roporl of Yislar KolIis
invosligalion, vloroin lo admillod llal lo vorks as llo IHHs socrolary-gonoraI, arlicIo
03/06/10/825/5056, |!. , roporl of Molmol BuIgas invosligalion, vlo vas on llo Gazzo
slip, vloroin lo admillod llal lo vorks al llo IHHs arclivos, arlicIo 03/06/10/821/5057,
|!., roporl of Infi Sinans invosligalion, vloroin lo admillod llal lo is a mombor of llo
IHH, arlicIo 03/06/10/821/5077, |!., roporl of AbduIIal Izikials invosligalion, vloroin
lo admillod llal lo slarlod vorking as a voIunloor for llo IHH, bul las boon an ompIoyoo
of llo organizalion for sovon yoars, arlicIo 03/06/10/821/5069, |!., roporl of IsmaiI
YImozs invosligalion, according lo vlicl lo las boon vorking for llo IHH organizalion
as load of producl purclasing, arlicIo 03/06/10/895/5026, |!., roporls of llo caplain of
llo M.ti M.rm.r., Molmul ToroIs invosligalion, vloroin lo slalod llal llo IHH lirod lis
sorvicos for llo fIoliIIa, arlicIos 03/06/10/825/5080 and 03/06/10/825/5092, |!., roporl
of llo caplain of llo Dofnoy slips caplain HaIuk KuIkvans invosligalion, according lo
vlicl IHH vorkors and cargo voro on llo slip, arlicIo 03/06/10/825/5081, |!., roporls
of Hussoin Uruzs invosligalion, according lo vlicl lo las boon vorking for llo IHH
organizalion for sovon yoars and doaIs vill llo organizalions lios lo foroign organizalions
and llo modia, arlicIo 03/06/10/825/5060 and arlicIo 03/06/10/825/5050, |!., roporl of llo
load of llo IHH, BuIonl YiIdirims invosligalion, according lo vlicl llroo of lloso kiIIod
in llo fIoliIIa voro IHH voIunloors, arlicIo 03/06/10/825/5059, |!., roporl of Mulammad
Aclmod SaIams invosligalion, according lo vlicl lo is a roporlor for llo organizalion,
arlicIo 03/06/10/825/5060, |!., roporl of Molmol Ozmoslas invosligalion, according lo
vlicl lo is a donor lo llo organizalion, as voII as a voIunloor, arlicIo 03/06/10/825/5036,
|!., roporl of Radouan Kayals invosligalion, according lo vlicl lo organizod donalions
for llo organizalion and is aIso a voIunloor in il, arlicIo 03/06/10/825/5062, |!.
703 Soo Muclram Gonasls announcomonl lo llo poIico, according lo vlicl lo is a voIunloor
al llo IHH, loslimony of suspocl 3 of Sc|!icrs, Dccicrs, .n! Suspccis Pc|icc Si.icmcnis,
supr. nolo 702, Muslafa Bulrans announcomonl llal lo vas ompIoyod on llo slip by lis
uncIo, vlo vorks for llo IHH, loslimony of suspocl 7, |!., GiIi Muclilins announcomonl
llal lo offors lumanilarian aid in difforonl counlios on bolaIf of llo IHH, loslimony of
suspocl 22, |!., Zaclarial Kayas announcomonl llal lo look parl in llo fIoliIIa vlicl vas
organizod by llo IHH, as an ompIoyoo of a lumanilarian aid organizalion from IslanbuI,
loslimony of suspocl 24, |!., Iali Kiukodans announcomonl llal lo vas roquoslod by llo
aid organizalion lo vorks for lo join llo fIoliIIa organizod by BuIonl YiIdirim (load of llo
IHH), loslimony of suspocl 41, |!., soo aIso llo roporl of ManuoI Vospinors invosligalion
according lo vlicl lo vas invilod lo llo fIoliIIa by llo IHH, arlicIo 03/06/10/821/5097,
Mi|ii.r |nic||igcncc Rcpcris, supr. nolo 491, roporl of kukirian Guyans invosligalion,
vloso friond vislod lo liro lim as a crov mombor on board llo Marmara, and according
lo vlom llo IHH group conlroIIod llo vossoI and gavo inslruclions lo llo passongors,
llo crov mombors, and llo journaIisls, arlicIo 03/06/10/825/5085, |!., roporl of AbdoI
Hakim AIkloibis invosligalion, according lo vlicl lo vas invilod lo llo fIoliIIa by llo
IHH, arlicIo 03/06/10/825/5044, |!., roporl of llo load of llo IHH, BuIonl YiIdirims
invosligalion by llo IDI invosligalivo unil, according lo vlicl llroo of lloso kiIIod in llo
fIoliIIa voro IHH voIunloors, arlicIo 03/06/10/825/5030, |!., roporl of Oskan TonboyIus
invosligalion, according lo vlicl asido from llo fIoliIIa lo look parl in ollor IHH aclivilios,
arlicIo 03/06/10/825/5063, |!., soo aIso an inlorviov vill ono of llo parlicipanls of llo
fIoliIIa givon lo an Haarolz roporlor in BoIfasl, Noam Sloizaf 1csiimcn |rcm i|c Dcc|.
Ollor parlicipanls in llo fIoliIIa, vlo slalod llal lloy lad joinod llo
fIoliIIa duo lo lumanilarian molivalions aIono, aIso slalod llal lloy lad
rospondod lo appoaIs from llo IHH organizalion or lad signod up for llo
fIoliIIa llrougl il.
704
AIso, llo lranscripl of llo fIoliIIa Ioadorslip mooling
indicalos llal llo IHH organizalion sol up a command loadquarlors for
llo fIoliIIa on Iand, vloro llo dopuly diroclor of llo organizalion, Yavuz
Dado, slayod.
705
163. Tlo lranscripl of llo fIoliIIa Ioadorslip mooling indicalos llal
llo ollor organizalions vlicl look parl in organizing llo fIoliIIa aro
as foIIovs: llo Iroo Gaza Movomonl (loroaflor: FGM), llo Iuropoan
Kcnnci| OKcc|c, Icrmcr M.rinc, u.s cn oc.r! i|c M.rm.r. Wis|ing ic rc.c| G.z. H..rciz
On|inc 24.9.2010, as voII as ||CC rcpcri (Sop. 27, 2010), supr. nolo 83.
704 Soo for oxampIo llo announcomonl of HaIim Yizigi according lo vlicl lo roaclod llo
fIoliIIa foIIoving llo pubIicalion and convonlion llo IHH organizalion loId rogarding
llo fIoliIIa moanl lo provido aid for Gaza, loslimony of suspocl 19 of Sc|!icrs, Dccicrs, .n!
Suspccis Pc|icc Si.icmcnis, supr. nolo 702, llo loslimony of Ikar Slukri, villin vlicl lo
slalod llal BuIonl YiIdirim (load of llo IHH) is llo fIoliIIa organizor and llal lo limsoIf
joinod llo fIoliIIa in ordor lo loIp Gaza, foIIoving IHH pubIicalion, loslimony of suspocl
20, |!., IoIico loslimony by Molmol AIi Akdniz, according lo vlicl llo IHH mombors
gavo llo Marmara passongors ordors and ran llo slov, according lo lis slalomonl lo
joinod llo fIoliIIa llrougl llo organizalions vobsilo in ordor lo provido lumanilarian
aid lo Gaza, loslimony of suspocl 21, |!., IoIico loslimony by Ribla Kumrok, according
lo vlicl llo IHH advorlizod an invilalion lo voIunloor for llo fIoliIIa, soo loslimony of
suspocl 8, |!., IoIico loslimony by Iikari KraviI, according lo vlicl lo joinod llo fIoliIIa
vill llo purposo of providing aid, foIIoving pubIicalion in llo modia and a conforonco
loId by llo IHH, loslimony of suspocl 23, |!., IoIico loslimony by Iklsan Slamrock,
according lo vlicl lo signod up for llo fIoliIIa llrougl llo organizalions vobsilo in
ordor lo provido lumanilarian aid lo Gaza, slayod al a loloI in IslanbuI llrougl llo
organizalion and doparlod lo AnlaIya on a bus providod by llo IHH, vloro lo look
parl in a conforonco loId by llo mombors of llo organizalion vlo voro spociaI uniforms
and gol on a bus lo llo porl providod by llo IHH, loslimony of suspocl 25, |!., IoIico
loslimony by AbduIlaIim AI MaIi, according lo vlicl lo joinod llo fIoliIIa llrougl an
IHH campaign vill llo purposo of providing aid lo Gaza, loslimony of suspocl 26, |!., soo
aIso llo roporl of AdiI YuksoIs invosligalion, vlo voIunloorod for llo fIoliIIa llrougl llo
IHH, according lo lis slalomonl, llo M.ti M.rm.r. vas acluaIIy boing run by llo IHH,
and somo of llo organizalions mombors voro vosls ombIazonod vill llo organizalions
prinl, llo poopIo on llo slip voro briofod lo acl according lo llo IHHs inslruclions and al
a corlain slago of llo fIoliIIa llo inslruclion vas givon llal llo boarding of llo slip by IDI
soIdiors musl bo provonlod al aII cosls, arlicIo 03/06/10/825/5094, Mi|ii.r |nic||igcncc
Rcpcris, supr. nolo 491, roporl of Aclmod oI Dslams invosligalion, according lo vlicl
lo signod up for llo fIoliIIa llrougl llo IHH officos in IslanbuI, and according lo lis
slalomonls, llo load of llo organizalion dislribulod inslruclions lo llo passongors, briofod
llo journaIisls, and vas rosponsibIo for llo vloIo fIoliIIa, , arlicIo 03/06/10/821/5083,
|!, roporl of Hakan aI Biraqs invosligalion, arlicIo 03/06/10/825/5071, |!., roporl of
Said IbijiulaIos invosligalion, arlicIo 03/06/10/825/5082, |!., roporl of YujoI Kusas
invosligalion, arlicIo 03/06/10/825/5043, Id., roporl of AdaI Hunas invosligalion, arlicIo
03/06/10/825/5090, |!., roporl of AdaI Tunas invosligalion, arlicIo 03/06/10/825/5057,
|!., roporl of Hasin Slbars invosligalion, arlicIo 03/06/10/825/5047, |!.
705 |HH I|cii||. C.mp.ign Summ.r, supr. nolo 209.
Campaign lo Ind llo Siogo on Gaza (loroaflor: ECE5G), llo Grook Slip
lo Gaza Campaign, and llo Svodisl Slip lo Gaza.
IGM is an organizalion rogislorod in Cyprus as a luman riglls
organizalion, vill ils loadquarlors Iocalod in Nicosia. Tlo organizalion
vas foundod in 2006, and ils vobsilo slalos llal il las 28 branclos
llrougloul llo vorId. Tlo organizalion's clarlor providos llal ils
purposo is lo broak llo siogo on llo Gaza Slrip by moans of, inicr .|i.,
"civiI rosislanco and non-vioIonl dirocl aclion", vlicl viII oslabIisl a
pormanonl soa Iano bolvoon llo Gaza Slrip and llo rosl of llo vorId.
706

Tlo organizalion bogan dispalcling fIoliIIas lo llo Gaza Slrip in 2008, and
vas bolind llo dispalcling of oigll fIoliIIas, fivo of vlicl succoodod in
roacling llo Gaza Slrip (in Augusl 2008, in Oclobor 2008, in Novombor
2008, and lvo in Docombor 2008), vloroas llroo voro sloppod by llo
navy (llo Dignii yacll, vlicl allomplod lo roacl llo Gaza Slrip al llo
ond of Docombor 2008, and llo Spirii c| Hum.nii vossoI, vlicl allomplod
lo roacl llo Gaza Slrip in }anuary 2009 and again in }uno 2009).
707
Anollor
organizalion oporalos villin llo framovork of llo IGM, undor llo namo
of llo "InlornalionaI SoIidarily Movomonl" (loroaflor: I5M), vlicl las
adoplod llo goaI of supporling IaIoslinian popuIar rosislanco aclivilios
and opposing IsraoIi poIicy in llo Wosl Bank and Gaza Slrip.
708

Tlo IICC roporl of }uno 10, 2010, nolos llal llo IGM organizalion
lad ils aclivisls sign a docIaralion in vlicl lloy pIodgo nol lo uso
plysicaI or vorbaI vioIonco againsl IDI soIdiors.
709
Hovovor, in ils
roporl from Soplombor 27, 2010, IICC nolos llal il possossos an inlornaI
documonl of llo organizalion from Marcl 7, 2010, vlicl vas soizod on
llo M.ti M.rm.r., vlicl slalos in a soclion on mission slralogy llal llo
organizalion's vorking assumplion is llal "llo onIy vay for IsraoI lo slop
us is lo uso forco." Tlis documonl anaIyzos various oplions for lov lo acl
in sucl a silualion, incIuding pIacing obslacIos (oncircIing llo dock vill
molaI rods, scalloring slarp obslacIos in ordor lo provonl Ianding from llo
air), and barricading llomsoIvos insido llo conlroI room and llo ongino
room.
710
Hovovor, il slouId bo nolod llal llo documonl's loading slalos
llal il is a drafl llal is nol inlondod for dislribulion. Anollor documonl
llal vas soizod on llo C|.||cngcr 1 conlains IogaI informalion llal,
apparonlIy, vas inlondod lo bo convoyod lo llo boal's passongors. Tlis
706 Soo llo organizalions vobsilo vvv.froogaza.org.
707 Soo Dc|cnsc Minisicrs Mcmcr.n!um Appcn!ixcs, supr. nolo 209, al appondixos Y, Z.
708 Soo llo organizalions vobsilo paIsoIidarily.org.
709 ||CC rcpcri (}un. 10, 2010), supr. nolo 83, al 2.
710 Dr.|i - Nci |cr Disiriouiicn (Iroo Gaza Movomonl roporl, }uI. 3, 2010), soo aIso ||CC rcpcri
(}un. 14, 2010), supr. nolo 83, al 6-17.
informalion oxpIicilIy slalos llal llo organizalion is avaro of llo facl llal
llo lransfor of suppIios lo llo Hamas conslilulos a crimo undor llo Iavs
of llo Unilod Slalos, and aIso llal llo Unilod Nalions addod llo Hamas
lo ils bIack Iisl of lorrorisl organizalions. Tloroforo, llo Amoricans and
cilizons of ollor nalionaIilios voro varnod "lo avoid ovon llo appoaranco
of maloriaI supporl" for llo Hamas or ils Ioadorslip.
711

Tlo ICISG is an umbroIIa organizalion uniling aboul 30 non-
govornmonlaI organizalions (NGOs), vloso purposo is "lo bring lo an ond
IsraoI's iIIogaI siogo of Gaza". Tlo organizalion oporalos in cooporalion
vill poIilicians, acadomics, and luman riglls organizalions llrougloul
Iuropo. Il slouId bo nolod llal ono of llo foundors of llo organizalion
(and ono of llo organizors of and parlicipanls in llo fIoliIIa vlicl is llo
subjocl of llis roporl) is Amin Abu Raslod, a IaIoslinian loIding a Dulcl
passporl, vlo is idonlifiod vill llo "MusIim Brollorlood" and vill
organizalions connoclod lo il in HoIIand and Iuropo.
712
Il is furllor nolod llal llo officiaI prolocoI of llo fIoliIIa Ioadorslip
mooling doos nol monlion any pIans for vioIonl aclion againsl llo IDI,
and llal in llis forum il vas docidod llal llo quoslion of lov lo prolocl
llo passongors' socurily vouId bo Iofl lo llo discrolion of llo vossoIs'
caplains.
713
The Participants nn the FIntiIIa
164. Tlo lolaI numbor of parlicipanls on llo fIoliIIa vas approximaloIy
700 passongors, from 40 counlrios.
714
On llo M.ti M.rm.r., lloro voro
approximaloIy 590 passongors from 34 difforonl counlrios, incIuding
711 Icg.| |n|crm.iicn (Opinion by Iroo Gaza Movomonl), soo aIso ||CC rcpcri (}un. 14, 2010),
supr. nolo 83, al 4-5.
712 ||CC rcpcri (Ocl. 5, 2010), |!., al 5.
713 |HH I|cii||. C.mp.ign Summ.r, supr. nolo 209. Irom llo |prolocoI il arisos llal llo fIoliIIa
organizors discussod sovoraI oplions for llo vay ovonls al soa migll dovoIop, and among
ollor oplions look inlo considoralion llo possibiIily of firo boing diroclod al llom or an
arrosl of llo poopIo on board llo slip, as lo llo possibiIily of slooling il vas vrillon:
714 Oponing firo
a) }usl lo inlimidalo, vo koop moving forvard
b) Nood lo do poIilicaI and modia vork al llo samo limo
c) Conlinuo sIovIy, communicaling vill IsraoI
d) If slooling is moro sorious viII nood lo slop and assoss. Caplains viII lavo lo mako docisions
concorning safoly of mission.
o) Wo aII slay logollor.
Ior a dolaiIod anaIysis of llo nalionaI and organizalionaI affiIialions of llo passongors on
board llo Marmara as voII as llo oulIinos of various organizalions and aclivisls on board
llo Marmara, soo llo Iisl of passongors found on llo M.ti M.rm.r., |MO P.sscngcr Iisi
(May 27, 2010), ||CC rcpcri (Sop. 26, 2010), supr. nolo 83, al 8-104.
Turkoy (mosl of llo parlicipanls, approximaloIy 353 passongors), Brilain,
Kuvail, Balrain, AuslraIia, Spain, BoIgium, Macodonia, MaIaysia,
IroIand, Iobanon, AIgoria, Iranco, Nov ZoaIand, Iakislan, Soull Africa,
Indonosia, Unilod Slalos, Gormany, Canada, Grooco, Norvay, Morocco,
Yomon, Syria, Sorbia, Kosovo, Bosnia, Svodon and IsraoI. According lo
an anaIysis conduclod by llo IICC, llo passongors can bo dividod inlo llo
foIIoving llroo calogorios, basod on lloir organizalionaI affiIialion:
(1) Ninoly-ono aclivisls and voIunloors of llo IHH organizalion,
incIuding llo organizalion's Ioador, BuIonl YiIdirim.
ApproximaloIy 40 aclivisls from llis group boardod in llo porl of
IslanbuI villoul a socurily clock, and llo rosl, incIuding BuIonl
YiIdirim, boardod in llo porl of AnlaIya.
(2) Ovor 200 aclivisls from non-govornmonlaI organizalions and
bodios (NGOs), mosl of vlom voro from Turkoy and a fov of
vlom voro from ollor counlrios.
(3) Hundrods of voIunloors vlo rospondod lo llo appoaIs of various
organizalions lo parlicipalo in llo fIoliIIa. AIso prominonl among
llo passongors voro journaIisls, many of vlom voro from llo
Arab vorId (incIuding roprosonlalivos of lvo Hamas loIovision
slalions), and dozons of mombors of parIiamonls from, inicr .|i.,
Gormany, Kuvail, IroIand, Yomon, Igypl, AIgoria, and IsraoI.
165. Tlo invosligalivo maloriaI llal vas furnislod lo llo Commission
by various aullorilios indicalos llal lloro vas a "lardcoro group" of
aboul 40 IHH aclivisls vlo boardod llo M.ti M.rm.r. soparaloIy and
villoul any socurily clocks in llo porl of IslanbuI, vliIo llo rosl of llo
passongors lad boon askod lo gallor indopondonlIy in AnlaIya on May
26-27, vloro lloy boardod llo vossoI aflor undorgoing socurily clocks.
715

A Iargo amounl of oquipmonl vas found on llo M.ti M.rm.r. vlicl,
apparonlIy, lad boon lakon aboard in IslanbuI: 150 proloclivo coramic
vosls, vlicl lad llo fIag of Turkoy prinlod on llom,
716
300 gas masks
715 Soo |DI Ccmp|ciicn Rcspcnsc c| .11.2010, supr. nolo 486, al appondix G, 1|c |i|.n! Rcpcri,
supr. nolo 402, al 38, ||CC rcpcri (}un. 10, 2010), supr. nolo 83, al 2, ||CC rcpcri (}un. 7, 2010),
|!., al 3, In lis loslimony boforo llo MiIilary InloIIigonco invosligaling llo ovonl llo caplain
of llo Marmara monlionod llal in facl onIy AnlaIya lad molaI doloclors in spilo of llo
facl llal llo slip coIIoclod 40 passongors from IslanbuI, soo arlicIo 03/06/10/825/5093,
Mi|ii.r |nic||igcncc Rcpcris, supr. nolo 491.
716 Tloro is uncorlainly rogarding llo numbor of proloclivo KovIar vosls found and
lloir numbor in llo various IDI roporls fIuclualos bolvoon 100 lo 150 unils, soo main
findings from inquiry 1/06 of CoIIoclion Brancl Hoad, Dooponing and Broadoning llo
GonoraI Slaffs Ixporls Inquiry (Aug. 25, 2010), markod by llo Commission as oxlibil 90
|loroinaflor |nuir |xp.nsicn c| 25.8.2010j, vloro il is monlionod llal 100 vosls vill llo
Turkisl fIag dravn on llom voro dislribulod lo somo of llo M.ti M.rm.r.s passongors
and aboul 200 addilionaI fiIlors, communicalion dovicos, oplicaI dovicos
(sovoraI nigll vision goggIos and a fov binocuIars), 50 sIingslols of
various kinds, 200 knivos, 20 axos, llousands of baII boarings and slonos,
disk savs, poppor sprays, and smoko fIaros. A fov fIags and scarvos of
llo Hamas and ils miIilary ving voro found,
717
as voII as a loIoscopic rifIo
sigll and ammunilion (rifIo buIIols),
718
scuba-diving goar and spoar guns,
719

and a fioId lospilaI.
166. Tlo maloriaI boforo llo Commission aIso indicalos llal llo
group of aclivisls llal boardod llo vossoI in IslanbuI dosignalod ilsoIf
using various idonlificalion slickors. Somo of llom voro slickors
idonlifying llom as "crov". Ollors voro rod slickors vill llo vords
"||.rcs .mni", i.o., idonlifying llom as a "socurily guard".
720
According
lo llo soIdiors' loslimonios, llo vioIonl aclivisls aIso voro coramic vosls
undor lloir Iifo jackols (vlicl, apparonlIy, voro aIso dislribulod lo llo
doclors and llo journaIisls).
721
Tlo loslimony of llo cliof officor of llo
in advanco, in llo summary of llo combal oquipmonl found on board llo slip conduclod
by llo NavaI InloIIigonco company, on llo ollor land, il vas monlionod llal 150 miIilary
proloclivo vosls mado in Turkoy voro found on board llo slip, soo aIso ||CC rcpcri (}un. 7,
2010), supr. nolo 83, al 6, according lo vlicl aboul 100 KovIar vosls voro found on board
llo Marmara as voII as ||CC rcpcri (}un. 10, 2010), |!., al 3, according lo vlicl aboul 150
vosls voro brougll on board llo slip.
717 Somo of llo sIingslols, for oxampIo, voro inscribod vill HozboIIal, soo ||CC rcpcri
(}un. 7, 2010), |!., al 6, ||CC rcpcri (}un. 10, 2010), |!., al 3, As for llo scarvos, soo aIso llo
summary of combal oquipmonl conduclod by llo NavaI InloIIigonco company, |nuir
|xp.nsicn c| 25.8.2010, supr. nolo 716.
718 Il slouId bo monlionod llal four buIIol casings nol usod by llo IDI voro found on board
llo M.ti M.rm.r., Iikoviso, a buIIol rocovorod from llo knoo of ono of llo injurod soIidor
vas aIso nol a slandard IDI buIIol. Al llo samo limo, Mr. Giora IiIand, llo load of llo
IDIs oxporl loam appoinlod lo invosligalo llo ovonl, monlionod llal il cannol bo said
vill compIolo corlainly llal lloso voro buIIols firod from a non-IDI voapon sinco il
cannol bo ruIod oul llal lloso buIIols somolov mado lloir vay inlo llo IDI ammunilion,
soo prolocoI of mooling 7 by llo Commission, 1csiimcn c| i|c Hc.! c| i|c |xpcri |nuir
1c.m (Aug. 24, 2010), al 6 |loroinaflor C|csc! Dccr 1csiimcn c| i|c Hc.! c| i|c |xpcri |nuir
1c.mj, C|ic| c| Si.||s Opcn Dccr 1csiimcn c| 24.10.2010, supr. nolo 554, al 30 (in rolrospocl
il lurns oul vo lad sucl buIIols. Sinco 2007 llo Slayolol doos nol knov llis. Bul I canl say
dofinilivoIy |.j).
719 Soo summary of combal oquipmonl found on board llo slip conduclod by llo NavaI
InloIIigonco company, |nuir |xp.nsicn c| 25.8.2010, supr. nolo 716.
720 Soo |DI Ccmp|ciicn Rcspcnsc c| .11.2010, supr. nolo 486, al appondix G.
721 Soo for oxampIo llo loslimony of soIdior no. 8, 4 (anollor facl llal slovod llal lloy
voro proparing for a vioIonl slruggIo voro llo orango vosls vlicl in rolrospocl lurnod
oul lo bo KovIar vosls), llo loslimony of soIdior no. 7 (lloy lad proloclivo vosls, somo
lad gas masks), llo loslimony of llo Commandor of llo Takoovor Iorco (as far as I am
concornod lorrorisls aro an armod group drossod for ballIo - proloclivo vosls masks and
faciaI covors). |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, llo loslimony of soIdior no.
24, al 2 (vliIo landcuffing I nolicod llal los drossod in a proloclivo vosl. I aIso clockod
llo ollor poopIo and sav lloy voro voaring proloclivo vosls), llo loslimony of soIdior
no. 26, al 1 (somo of llo lorrorisls voro drossod in Iargo proloclivo vosls), llo loslimony
vossoI, Mr. Gokkiran Goklan, indicalos llal llo IHH poopIo dislribulod
communicalion dovicos lo llo aclivisls, vlicl lloy usod lo communicalo
amongsl llomsoIvos.
722
Communicalion dovicos voro aIso dislribulod
lo llo vossoI's crov mombors, bul lloy voro caIibralod on a difforonl
froquoncy.
723
According lo various loslimonios, lloso aclivisls slayod on
llo roof and mainlainod a soparalion from llo rosl of llo passongors on
llo M.ti M.rm.r. during llo voyago.
724
Insido an aroa dosignalod as a
pross room, vloro llo journaIisls voro conconlralod, vill a guard from
llo IHH organizalion slalionod al ils onlranco, anollor socurod aroa vas
sol up, vlicl vas proloclod conlinuousIy by lvo IHH guards. YiIdirim
and ollor aclivisls slayod lloro. Tlis aroa aIso conlainod an odiling room
and llo compulors connoclod lo llo slip's cIosod circuil socurily camoras.
725

Tlo slalomonl of llo cliof officor of llo M.ti M.rm.r., Gokkiran
Goklan, indicalos llal llo poopIo from llo IHH look conlroI of llo vossoI
during llo journoy and provonlod poopIo vlom lloy did nol knov from
moving aboul frooIy:
Inlorviovor: You soom lo bo saying llal llo poopIo from IHH
voro in conlroI of llo slip. Did llo crov nood lloir pormission
lo movo around llo slip`
Cliof Officor: DofiniloIy, lloy didn'l Iol llo poopIo lloy didn'l
knov movo around.
Inlorviovor: Did lloy provonl anyono lloy didn'l knov from
moving frooIy around llo slip`
Cliof Officor: Yos, dofiniloIy.
Inlorviovor: Was llal from llo firsl momonl lloy vonl up on
dock`
Cliof Officor: Yos, dofiniloIy.
....
Inlorviovor: I don'l undorsland, lloy didn'l Iol llo passongors
and crov go from ono dock lo anollor`
Cliof Officor: Tloy couId go anyvloro, oxcopl lo llo conlroI
conlor lloy sol up on llo bridgo.
of soIdior 16, 1 (vo idonlifiod a group of lorrorisls vill proloclivo vosls), loslimony of
soIdior no. 27, al 1 (vliIo scanning vo found somo of llo poopIo lad proloclivo vosls),
|DI Ccmp|ciicn Rcspcnsc c| .11.2010, supr. nolo 486, soo aIso C|ic| c| Si.||s Opcn Dccr
1csiimcn c| 11.8.2010, supr. nolo 70, al 29, ||CC rcpcri (}un. 7, 2010), supr. nolo 83, al 6.
722 Tlo lranscripl of llo loslimony vas pubIislod in ||CC rcpcri (}un. 9, 2010), |!., al 8, Soo aIso
Dc|cnsc Minisicrs Mcmcr.n!um Appcn!ixcs, supr. nolo 209, al appondix N.
723 |!.
724 Soo for oxampIo llo loslimony of llo commandor of Slayolol 13, |nuir |xp.nsicn c|
20.9.2010, supr. nolo 451, al 6-7, soo aIso ||CC rcpcri (}un. 1, 2010), supr. nolo 83, al 7.
725 ||CC rcpcri (}un. 10, 2010), |!., al 7.
YiIdirim vas inlorviovod froquonlIy by llo modia during llo
voyago on llo M.ti M.rm.r. lovards llo Gaza Slrip, and lo said, inicr
.|i., llal aIllougl llo rosislanco by llo fIoliIIa parlicipanls vouId nol
bo vioIonl, lloy vouId nol Iol IDI soIdiors board llo vossoIs.
726
During
a pross conforonco loId boforo llo M.ti M.rm.r. Iofl AnlaIya, YiIdirim
slalod, "Wo aro dolorminod lo onlor Gaza, rogardIoss of vlal lappons."
727

In a vidoo found on llo M.ti M.rm.r., vlicl apparonlIy lad boon fiImod
by ono of llo plolograplors vlo documonlod llo ovonls on llo roof,
YiIdirim is soon spoaking loalodIy boforo a Iargo crovd of Iislonors.
YiIdirim said, inicr .|i.: "If you sond in llo commandos, vo'II llrov you
dovn boIov from loro, and you'II bo lumiIialod in fronl of llo vloIo
vorId."
728
An arlicIo in Turkisl vrillon by llo journaIisl Adlam Ozkazo for
"Tlo WorId BuIIolin" novspapor, vlicl vas loadIinod "M.ti M.rm.r.
is Roady lo Rosisl ", found on ono of llo compulors soizod on llo M.ti
M.rm.r., slalos llal llo aclivisls on llo slip voro proparing for "civiI
rosislanco" and lloy lad lakon il upon llomsoIvos "lo dofond llo slip".
Tlis arlicIo aIso roporls llal llo aclivisls voro unviIIing lo divuIgo lloir
slralogy for dofonding llo vossoI, bul lloy said, "Wo viII loacl llo IsraoIis
a Iosson lloy von'l forgol and llo IsraoIi army viII bo lumiIialod boforo
llo oyos of llo onliro vorId."
729
On various vidoos llal voro soizod on
llo M.ti M.rm.r. and in a roporl vlicl vas broadcasl on llo AI-}azoora
slalion Iivo from llo M.ti M.rm.r. lvo days boforo llo ovonls, somo of
llo passongors on llo slip aro soon singing songs of praiso for llo inlifada
and caIIing oul impassionodIy.
730
In llo samo roporl, ono of llo passongors
on llo slip vlo vas inlorviovod, Slaza Barakal, said: "Tvo good llings
viII lappon: oillor vo viII dio as s|.|cc!s or vo'II roacl Gaza."
731
In fiIms
lakon on llo M.ti M.rm.r., ollor aclivisls aro soon oxprossing llo dosiro
lo dio as s|.|cc!s, and saying goodbyo lo lloir famiIy mombors.
732

726 Soo lranscripl of llo firsl officors loslimony, supr. nolo 722.
727 |HH. Yi|!irim. Wc .rc Gcing ic Ic.tc in Duc Ccursc, .t.i|.o|c .i vvv.ill.org.lr/yiIdirim-
zamani-goIinco-yoIa-cikacagiz/on (2010).
728 ||CC rcpcri (}un. 20, 2010), supr. nolo 83, al 8, appondix - Spcci|ic Rcm.r|s o B|cni Yt|!trtm.
729 ||CC rcpcri (}un. 17, 2010), |!., al 1-2, Tlo vidoo fiIo |nsiig.iing i|c Crcu! cn Bc.r! i|c M.ti
M.rm.r. o i|c Hc.! c| i|c |HH .n! Oi|cr Aciitisis may bo soon on llo IICCs vobsilo (vidoo
cIips fiIo 4).
730 ||CC rcpcri (}un. 10, 2010), |!., al 12.
731 ||CC rcpcri (}un. 13, 2010), |!., al 1, Tlo vidoo fiIo |nsiig.iing i|c Crcu! cn Bc.r! i|c M.ti
M.rm.r. Pricr ic i|c |nccunicr uii| |DI Icrccs may bo soon on llo IICCs vobsilo (vidoo
cIips fiIo 2).
732 ||CC rcpcri (}un. 13, 2010), |!., al 1, A loIovision roporl from llo AI }azoora clannoI from
May 29, 2010, vlicl vas broadcasl from llo slip lvo days prior lo llo oncounlor vill
llo IDI forcos may bo soon on llo IICCs vobsilo, in llo inlorviov givon lo AI }azoora
by Hasin Urusl, a sonior IHH mombor and among llo fIoliIIas organizors, a numbor of
167. Tlo passongors' loslimonios and llo inlorrogalion of llo caplain
and cliof officor of llo M.ti M.rm.r. indicalo llal on May 30, 2010, al
approximaloIy 10:00 p.m., aflor llo announcomonl of llo navy vas loard,
vlicl roquoslod llo slips lo rovorso lloir courso or lo rodirocl llo vossoI's
courso lo llo porl of Asldod, an ordor vas givon lo aII llo non-Turkisl
passongors lo onlor llo laII on llo Iovor dock, vliIo llo Turkisl IHH
poopIo voro loId lo go up lo llo uppor docks. Tlo M.ti M.rm.r.s sirons
voro aclivalod, and an ordor vas givon lo don fIolalion vosls. Al llo
samo limo, llo aclivisls bogan lo sav clains and ollor iloms from molaI
(approximaloIy 100 iron rods and 50 improvisod cIubs voro found on llo
M.ti M.rm.r.)
733
and lo coIIocl axos (vlicl voro lakon from llo slip's
firo oxlinguisling oquipmonl slalions, a lolaI of aboul 20 axos), knivos
(vlicl voro lakon from llo kilclon and llo cafolorias on llo slip, a lolaI
of aboul 200 knivos of various sizos voro found), lammors, looIs, boIls
and bollIos found on llo slip. Tlo aclivisls voro dividod inlo groups
vlicl voro slalionod in sovoraI difforonl aroas: ono group gallorod on
llo roof of llo slip, anollor group apparonlIy conconlralod noar llo roof
and sorvod as roinforcomonls for llo rosislors on llo roof, and anollor
group gallorod al llo slip's slorn. Somo of llo groups voro givon an
advanco briofing.
734
Tlo aclivisls voro oquippod vill coramic vosls, mosl
days prior lo llo lakoovor lo vonl on lo say llal aII llo passongors voro viIIing lo dio as
Slaloods sinco llo goaI of llo fIoliIIa vas lo roacl Gaza or bo kiIIod (AI }azoora slory
from }un. 5, 2010). Ior simiIar maloriaIs soo audio fiIo "Slalid.mov", in foIdor Vi!cc, Ar.o
D.i. Disc, supr. nolo 506.
733 Soo vidoo fiIos "molol1.mov" and "molol2.mov" in foIdor Vi!cc, Ar.o D.i. Disc, supr. nolo
506. Tlo vidoos, 20 and 34 soconds Iong accordingIy, slov llroo aclivisls on board llo
Marmara al nigll, using an oIoclric disc sav lo romovo iron bars from llo docks raiIing
soo aIso of Yislar KolIis invosligalion, arlicIo 03/06/10/825/5056, Mi|ii.r |nic||igcncc
Rcpcris, supr. nolo 491. During llo invosligalion of llo IHH voIunloor lo slalod llal al a
corlain slago vlon lloy slarlod rocoiving mossagos from llo IsraoIi Navy llo bIood roso
lo llo load of a Iol of youngslors on board llo slip, somo of llom savod molaI bars off
llo slips raiIing vill oIoclric savs and al a corlain slago llo slips caplain (vlo is nol a
mombor of llo IHH) askod ovor llo pubIic addross syslom llal poopIo dosisl from saving
said bars.
734 According lo llo Marmaras socurily camoras il arisos llal on May 30, 2010 al 21:36
(according lo llo cIock in llo socurily camora) a numbor of aclivisls conconlralod al
llo slips slorn and ono porson arrivod vill a buncl of voodon poIos and dislribulod
llom among lloso prosonl. AIso according lo llo socurily camora on May 30, 2010 al
22:03 (according lo llo cIock in llo socurily camora) a group of mon, aII drossod in Iifo
jackols, aro soon gallorod logollor for a briofing, vlon somo of lloso prosonl aro loIding
voodon poIos. Ialor on, noar llo slarl of llo Marmaras lakoovor on May 31, 2010 al 04:22
a group of mon is soon, aII drossod in Iifo vosls, somo loIding gas masks in lloir lands,
and lloy appoar lo bo poinling al llo soa (apparonlIy lovards llo Navy slips draving
cIosor lo llo Marmara), and lloy caII lloir frionds lo join llom, and indood sovoraI
addilionaI mon join llo group. Soo vidoo fiIos from llo socurily camora in foIdor Sccurii
C.m, Ar.o D.i. Disc, supr. nolo 506. Soo aIso llo roporl of Hussoin Uruzs invosligalion,
arlicIo 03/06/10/825/5050, Mi|ii.r |nic||igcncc Rcpcris, supr. nolo 491. Tlis porson slalod
of llom voro oquippod vill gas masks, and somo of llom voro oquippod
vill cIubs, iron rods, clains, sIingslols and baII boarings.
735
Tlo maloriaI
oblainod by llo Commission aIso indicalos llal during llo briofing givon
by YiIdirim, lo inslruclod llo aclivisls lo "mako a luman clain and llrov
llo commandos back inlo llo soa vill clairs and rods."
736

llal, on llo ovo of llo lakoovor lo sav proloclivo vosls and gas masks boing landod oul
lo somo of llo passongors and nolicod lvo passongors vill sIingslols. Iikoviso, as lo
slalod, lloro voro fanalics among llo passongors, llougl llo majorily oxprossod opinions
supporling passivo rosislanco onIy.
735 Iacls rogarding llo oquipmonl usod by llo rosislors, as slalod, may bo Ioarnod from
sovoraI sourcos: Iirsi, a vidoo slol by llo IDI forcos aflor llo Marmara las dockod al
Asldod Iorl vlicl documonls a conconlralion of somo of llo combal oquipmonl usod by
llo rosislors and brougll dovn from llo slip: lundrods of Gas masks, many dozons of
knivos (kilclon knivos as voII as commando knivos, ono of vlicl sooms lo bo covorod in
bIood), lundrods of marbIos, crovbars, voodon and iron rods in Iargo quanlilios (sovoraI
dozon), various sprays. Soo CD Ircm Pc.cc Cruisc ic 1crrcr Cruisc submillod by llo army
(minulo 4:27), found in a foIdor markod by llo commission as oxlibil 89.
736 Scccn!, mobiIo Ioronsics Iab roporl by llo poIico from }un. 2, 2010 (documonl 66 in llo
poIico fiIo, foIdor 72 of llo commissions oxlibils), vlicl documonls llo coIIoclion of
many bars, cIubs, pipo vronclos, somo of vlicl voro covorod vill bIood. According lo
llo mobiIo foronsics Iabs roporl lloro is indicalion llal llo bars found voro savn off llo
slips raiIing, soo aIso, plolo CD and vidoo cIip documonling llo mobiIo foronsic Iabs
visil lo llo slip, during vlicl cIubs, knivos of various lypos, gas masks, scrovdrivors,
gIass bollIos and axos aro soon, aII of llom found on llo Marmara, and corrosponding
vill llo doscriplions rogarding plysicaI vioIonco ompIoyod by llo rosislors on board llo
Marmara, markod by llo commission as oxlibil 75.45. Somo of llo plolos voro prinlod
onlo plolograpl boards (documonls 67-69 in llo poIico fiIo, foIdor 72 of llo commissions
oxlibils).
1|ir!, llo vidoo slol by ono of llo cruiso parlicipanls on 30.5.2010 al 03:55 (according lo
llo fiIo proporlios on llo digilaI camora), parlicipanls aro soon oponing cralos and laking
oul Iifo jackols and gas masks. Tlo gas masks aro packod and nov. Ono of llo poopIo is
soon loIding a gas mask and slaling AIIalu Akbar al llo camora. Soo vidoo fiIo "00234.
mov" in foIdor S1R|AM in foIdor BDMV, in foIdor AVCHD in foIdor Scn3 in foIdor Vi!cc,
Ar.o D.i. Disc, supr. nolo 506.
Icuri|, ono of llo IHH voIunloors on board llo Marmara loslifiod lo llo MiIilary
InloIIigonco invosligalors llal al a corlain slago, llugs (as lo caIIod llom) from llo IHH
dislribulod cIubs and iron bars (and lo limsoIf vas aIso armod vill ono), soo roporl of
AdiI YuksoIs invosligalion, arlicIo 03/06/10/825/5094, Mi|ii.r |nic||igcncc Rcpcris, supr.
nolo 491.
Ii|i|, IDI soIdiors laking ovor llo Marmara loslifiod aboul llo conconlralion of voaponry
and combal goar in llo possossion of llo rosislors on board llo slip. Soo, for oxampIos,
llo loslimony of llo Commandor of llo Takoovor Iorco rogarding llo oxislonco of a
Iargo conconlralion of axos, bars, knivos, clains, sIingslols, and gIass marbIos. Soo aIso
llo loslimony of Toam Commandor R, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 2,
rogarding llo discovory of fIaros, slicks, axos, knivos, loar gas, gas masks, marbIos, boIls,
crovbars, molaI bars, KovIar vosls vill a crosconl symboI, various nigll vision oquipmonl,
and moro, Soo aIso llo loslimony by llo commandor of llo lakoovor forco, |!., al 4-6.
Soo MiIilary InloIIigonco inquiry, submillod lo llo commission, Dccpcning .n! Brc.!cning
i|c |nuir - Rcspcnsc ic Ccmp|ciicn Rcucsi o i|c Puo|ic Ccmmissicn ic |x.minc i|c N.t.|
|tcni c| 31.5.2010, al appondix G, lransforrod by llo IDI on Nov. 17, 2010, in rosponso lo
llo commissions roquosl of Nov. 7, 2010, al 2, markod as oxlibil 90 in llo commissions
Ono of llo passongors doscribod llo ovonl as foIIovs:
"Al 11:30 pm lloro vas a mooling lo givo ordors lo llo socurily
loams for urgonl inlorvonlion. Ordors voro givon aboul lov lo
pul on Iifo boIls, lov lo pul on gas masks and mosl imporlanl,
lov lo acl if lloro vas IsraoIi inlorvonlion or an allack. Aflor
llo mooling llo loads of llo loams aIong vill lloir oporalivos
vonl lo socuro llo soclors. Wo voro rosponsibIo for llo uppor
afl soclor of llo socond dock on llo slarboard sido. Wo voro
supposod lo dopIoy for dofonso. Hov` OnIy vill slicks and
bollIos, apparonlIy llis is lov gIass bollIos slouId bo usod. And
Iifo boIls, |bulj lloro voronl onougl for ovoryono."
737
Anollor passongor vrolo in lis journaI:
Tlo IsraoIi gunboals aro approacling.AII passongors lavo
boon givon roscuo suils in caso llo slip is allackod. Ivoryono las
gono lo llo Iocalions dolorminod boforoland. A pross conforonco
vas loId and broadcasl Iivo. IHH Ioador BuIonl YiIdirim said
llal 'il viII bo a var of norvos unliI lomorrov morning. Tloro
aro poopIo loro from moro llan 50 counlrios. If poopIo aro
dolainod, il viII suIIy llo lonor of moro llan 50 counlrios. Wo
vanl llo onlry lo llo IsraoIi ombassios in IslanbuI and Ankara lo
bo Iockod. Wo viII dofond oursoIvos from loro. Wo knov lloro
oxlibils. Tlo inquiry monlions llal YiIdirim admillod llis in lis loslimony, ||CC rcpcri
(}un. 10, 2010), supr. nolo 83, al 8-11. Il slouId aIso bo monlionod llal a numbor of books
dolaiIing llo ovonls on board llo Marmara lavo boon roconlIy pubIislod in Turkoy. Ono
of llom, 1|c B|cc!ing M.ti M.rm.r., vas vrillon by journaIisl pofik Din, a roporlor for
llo popuIar novspapor H.ocrir|, vlo vas on board llo Marmara, documonlod llo
vioIonl confronlalion bolvoon llo IHH aclivisls and llo IDI soIdiors vill lis camora, and
smuggIod llo plolograpls back lo Turkoy.
737 ||CC rcpcri (Sop. 19, 2010), |!., roviovs llis book and comparos vlals slalod in il lo
addilionaI informalion avaiIabIo lo ||CC. Among ollor dolaiIs Din doscribos in lis book
llal lloro voro IivoIy convorsalions bolvoon llo voIunloors on board llo Marmara vloro
llo possibiIily vas raisod llal IsraoI vouId allack llo slip and llo aclivisls voro proparod
for ovory sconario and ovon oxprossod a viIIingnoss lo dio, as Iong as llo siogo is brougll
lo an ond. Il is aIso monlionod in llo book llal during llo vail for llo confronlalion
vill llo IDI sovoraI aclivisls praclicod driIIs in proparalion for a possibIo IsraoIi allack,
praclicod aiming valor losos lo llvarl allompls by IDI soIdiors lo board llo slip from
llo soa, lloy rocoivod guidanco rogarding llo uso of gas masks and voro inslruclod on
lov lo rosisl llo IDI soIdiors. Il vas aIso slalod llal oacl ono of llo poopIo in clargo of
llo passongors socurily rocoivod a soclor and a spol vloro lo lad lo posilion limsoIf
onco llo aIarm is soundod. Din goos on lo slalo llal aflor llo Navy slips addrossod llo
Marmara llo IHH aclivisls voko up llo passongors and dislribulod Iifo jackols and gas
masks among llom and organizod llom for rosislanco. Tlo posilion loIdors look lloir
pIacos in llo prodolorminod spols and llo cIubs voro brougll oul. Din adds llal iron
bars voro addod lo llo voodon cIubs I lad soon oarIior and llal according lo llo imago
I porcoivod, llo rosislanco for llo possibIo asconl of IsraoIi soIdiors is nol going lo bo so
passivo. Iikoviso Din doscribos a pross conforonco loId by YiIdirim in llo lours prior
lo llo lakoovor vloro lo docIaros llal soon vo viII mool vill IsraoIs lruo faco.
||CC rcpcri (}un. 10, 2010), |!., al 9.
viII bo a prico and vo aro viIIing lo pay il. Wo viII nol rolroal
ono slop. IsraoI is bolaving Iiko a piralo in inlornalionaI valors.
|WiIIj llo vorId valcl from llo sido`'"
738
IiImod inlorrogalions of llo caplain of llo M.ti M.rm.r. and ils
cliof officor indicalo llal in llo ovoning lours llo almosploro aboard llo
vossoI vas lonso, and llal aboul lvo lours boforo llo lakoovor bogan, a
crovd lad gallorod on llo main dock. Tlo crov mombors clockod and
discovorod llal llo aclivisls voro using disk savs lo cul llo raiIings of
llo slip and croalo molaI cIubs. Tlo crov mombors of llo M.ti M.rm.r.
slalod during lloir quoslioning llal lloir allompls lo provonl llis aclivily
voro unsuccossfuI.
739
Tlo loslimonios aIso indicalo llal llis group vas
mado up of lloso IHH aclivisls vlo lad boardod llo M.ti M.rm.r. in
IslanbuI.
Tlo caplain of llo M.ti M.rm.r., Mr. TuraI Malmul, slalod:
Caplain: Tloro voro passongors galloring on llo main dock, I
askod llo cliof officor, Wlal is lapponing lloro` Ho said lloy'ro
culling llo slooI rods and llo clains on llo dock. Ho said llal
lloy aro pulling llo cul raiIings in llo radio room on llo bridgo.
Ivon vlon your soIdiors look ovor llo slip lloy vonl inlo llo
radio room and look llo cul raiIings. I lad lo sond llo cliof
officor lo coIIocl llo raiIings from lloir lands, lo askod an IHH
man, and lloy gavo llom lo lim.
Inlorviovor: Wlal did lloy givo lo lim`
Caplain: Tlo disks.
Inlorviovor: Bul vlal did lloy do vill llo raiIings and llo
clains`
Caplain: I look llis and I llrov llis in llo soa. Wo knov vlal
vouId lappon if lloso llings gol lakon lo llo bridgo. Aflor llis,
vo didn'l soo anylling in lloir lands.
Inlorviovor: Bul vo sav on llo slip llal lloy cul many of llo
raiIings.
Caplain: Wlal I sav, I llrov inlo llo soa |...j I said lo llom lo
slop and I look llom up. I loId llo sponsors aboul llis many
limos.
Inlorviovor: You voro nol vorriod aboul llo vioIonco llal
vouId occur`
Caplain: I vas vorriod. |...j Bul I llougll llal as soon as lloir
commandor vas vill llom nolling vouId lappon, nobody
738 ||CC rcpcri (}un. 10, 2010), |!., al 13.
739 Tlo lranscripl of llo loslimony vas pubIislod in ||CC rcpcri (}un. 9, 2010), |!., al 2-3, Soo
aIso Dc|cnsc Minisicrs Mcmcr.n!um Appcn!ixcs, supr. nolo 209, al appondix N.
vouId figlling or kicking back. I askod many limos, bocauso I
knov vlal vouId lappon, bul I llougll llal bocauso lloro voro
cilizons on llo slip nolling vouId lappon, lloy vouId slay on
llo boal jusl as civiIians, villoul plysicaI rosislanco.
Inlorviovor: You voron'l vorriod aboul llo facl llal lloy voro
proparing a Iol of voapons`
Caplain: Wlalovor I sav I llrov inlo llo soa and somo I slorod in
llo radio room. I didn'l knov lloro vas so many.
....
Inlorviovor: Bul lloy voro proparing llomsoIvos for vioIonco
againsl llo soIdiors`
Caplain: Yos, I vas informod llal. Tlal's vly I varnod llom, I
said lo llom llal llo poopIo on llo boal camo lo domonslralo.
Tloy sav somo loIicoplors. Tloro vas a lonso air on llo boal,
and llon I sav poopIo vlo kopl on culling.
740
Tlo cliof officor of llo M.ti M.rm.r. slalod aboul llo idonlily of llo
aclivisls in llis group:
"Inlorviovor: Hov many IHH oporalivos voro lloro on llo roof`
Cliof Officor: Iorly.
Inlorviovor: Tlo samo forly aII llo limo or did lloy clango`
Cliof Officor: Moro or Ioss, llo samo forly.
Inlorviovor: Youro roforring lo llo group llal joinod llo slip
in IslanbuI`
Cliof Officor: Yos."
741
Tloso loslimonios aro supporlod by a numbor of ollor slalomonls
vlicl voro givon by parlicipanls of llo fIoliIIa during quoslioning by llo
poIico and llo IDI invosligalion unil.
742
AII of llo aforosaid inlorrogalions
740 |!., Tlo mallor of culling llo slips raiIing by IHH aclivisls for llo purposo of making iron
bars aIso camo up in llo invosligalion of llo slips caplain by MiIilary InloIIigonco, soo
roporl of Molmul ToroIs invosligalion, arlicIo 03/06/10/825/5092, Mi|ii.r |nic||igcncc
Rcpcris, supr. nolo 491.
741 Tlo lranscripl of Gukiran Gukolans loslimony vas pubIislod in ||CC rcpcri (}un. 9, 2010),
supr. nolo 83, al 5, Dc|cnsc Minisicrs Mcmcr.n!um Appcn!ixcs, supr. nolo 209, al appondix
N, Soo aIso roporl of kukirian Guyans invosligalion, arlicIo 03/06/10/825/5085, Mi|ii.r
|nic||igcncc Rcpcris, supr. nolo 491.
742 Soo for oxampIo roporl of Yusuf Molmods invosligalion, arlicIo 03/06/10/825/5029,
Mi|ii.r |nic||igcncc Rcpcris, supr. nolo 491. Molmod, a cilizon of Balrain, rofusod lo
cooporalo vill llo invosligalion bul monlionod llal llo Turkisl passongors (as opposod
lo llo passongors vlo voro cilizons of ollor counlrios) voro llo ono vlo aclod vill
vioIonco incIuding, as far as lo knov, llo uso of cIubs and sIingslols, soo aIso Molmol
YiIdirins loslimony lo llo poIico, vloro lo monlionod llal ono of llo passongors vislod
lo lil a soIdior, llo soIdior foII lo llo fIoor and llo loslifior proloclod lim from addilionaI
injurios infIiclod vill an iron bar, loslimony of suspocl 4 of Sc|!icrs, Dccicrs, .n! Suspccis
slrongllon llo loslimonios of llo soIdiors llal llo passongors of llo vossoI
voro dividod inlo lvo lypos, vioIonl aclivisls (llo IHH aclivisls) and
non-vioIonl poaco aclivisls, and llal llo IHH aclivisls voro armod and
bolavod Iiko an organizod forco.
SoIdior no. 4, vlo vas lakon boIov dock, slalod:
Q: Hov did llo aclivisls Iook`
A: Tloy aII soomod lo bo drossod aIiko, gas masks and an orango
vosl. Tloy Iookod voII-proparod, lloy voro vailing, and il
soomod Iiko il vas aII pIannod. Tloy voro aII vory big and loavy,
and il Iookod Iiko lloir goaI vas cIoar, lo larm us.
Q: Woro lloro difforonl claraclorislics among llo aclivisls`
A: Yos, il soomod lo mo llal lloro vas a group llal vas oquippod
vill llo goar, and llal camo lo allack us, and llo vloIo vay
llal lloy voro dragging mo insido, lloro voro plolograplors
vlo voro plolograpling mo, and I aIso loard vomon's voicos,
incIuding in IngIisl, Iiko 'Slop lil lim', olc."
743
Tlo Commandor of Conlor A slalod:
"I lavo no doubl llal llo lorrorisls on llo vossoI pIannod,
organizod, forosav llo ovonls, and pIannod lo kiII a soIdior. Tloy
voro organizod Iiko a miIilary forco: oquippod vill gas masks,
proloclivo vosls, lol and coId voapons. Tloy voro organizod
in a miIilary slrucluro, dividod inlo groups, lloy spoko lo oacl
ollor on radios |....j."
744
Tlo Slayolol 13 commandor slalod:
745
"No ordinary civiIians knovs lov lo figll al nigll vill a vosl
and gas mask for a Iong limo, lo lako a voapon and cock il lo
slool, and lo nol bo dolorrod vlon lloy'ro figlling back vill
you, unIoss lo las lrainod for llis and las boon proparod in
advanco..."
In llo margins, il slouId bo nolod llal, on lis ovn inilialivo,
YiIdirim vas inlorviovod for IsraoIi loIovision (a roporl by Oslral KolIor-
BongaI for ClannoI 10, vlicl vas broadcasl in IsraoI on }uno 26, 2010).
Tlo Commission rocoivod llo inlorviov conduclod vill YiIdirim, in a
rougl cul formal llal incIudos oxclangos of vords boyond vlal vas
said during llo officiaI inlorviov. In lis slalomonls, YiIdirim confirmod
llal lloro lad indood boon vioIonl organizing by somo of llo fIoliIIa
parlicipanls, and lo addod: "Wlal did you vanl, fIovors`" YiIdirim aIso
Pc|icc Si.icmcnis, supr. nolo 702.
743 Toslimony of soIdior 4, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451.
744 Toslimony of llo Commandor of Conlor A, |!.
745 Toslimony of Slayolol 13 Commandor, |!., al 7.
confirmod llal llo fIoliIIa parlicipanls armod llomsoIvos vill rods for
llo confronlalion vill llo soIdiors. Hovovor, YiIdirim linlod llal IsraoI
lad "pIanlod" anli-Somilic slalomonls by fIoliIIa parlicipanls villin llo
vidoos il dislribulod and ollor voapons (sucl as knivos). Tlis cIaim by
YiIdirim is nol consislonl vill llo originaI radio rocordings, llo picluros,
and llo originaI and unodilod fiIms (vlicl voro plolograplod, inicr .|i.,
by somo of llo fIoliIIa parlicipanls in roaI limo), vlicl llo Commission
oxaminod.
The Identity and OrganizatinnaI AIIiIiatinn nI the
Dead and the Wnunded
168. An oxaminalion of llo idonlily and organizalionaI affiIialion of
lloso vlo diod Ioads lo llo foIIoving concIusions. Iour oul of llo nino
vlo diod lavo boon idonlifiod as IHH aclivisls or voIunloors. Anollor four
of lloso vlo diod voro aclivisls in Turkisl IsIamic organizalions. Tvo
of llom voro aclivisls in llo Saadol Iarlisi (loroaflor: FeIicity Party), an
IsIamic parly vlicl vas oulIavod in Turkoy for vioIaling socuIar arlicIos
of llo Turkisl conslilulion. Tlo IoIicily Iarly is affiIialod vill IHH, and
il supporls llo Hamas and mainlains connoclions vill il. Tlo load of llo
parly, Irofossor Numan KurluImus, oxprossod oxpIicil supporl for llo
fIoliIIa lo llo Gaza Slrip and caIIod il a "bravo lisloric slop." Il slouId bo
nolod llal lloro voro in lolaI onIy four aclivisls from llo IoIicily Iarly
aboard llo M.ti M.rm.r.. Anollor porson vlo diod vas a 19-yoar-oId
vlo loId duaI cilizonslip (Turkisl and Amorican) and vlo, as far as is
knovn, vas nol affiIialod vill any organizalion.
According lo llo IICC roporl dalod Soplombor 27, 2010, vill rospocl
lo four of llo nino vlo diod, lloir famiIy mombors slalod llal lloy lad
oxprossod lloir dosiro lo dio as s|.|cc!s (incIuding llo young man vill
llo duaI cilizonslip monlionod abovo). Rogarding lvo of lloso vlo diod,
il vas roporlod llal lloy lad Iofl a Iollor or viII prior lo boarding llo M.ti
M.rm.r.. In a vidoo vlicl vas rocordod boforo llo vioIonl confronlalion
on llo M.ti M.rm.r., anollor ono of lloso vlo diod is loard saying: "I
pray llal AIIal granl us llo samo good ond as lloso s|.|cc!s."
746
Tlo foIIoving aro dolaiIs rogarding llo idonlily and organizalionaI
affiIialion of llo docoasod:
1. Ibrahim BiIgen - 61 yoars oId, cilizon of Turkoy. Ho joinod llo
fIoliIIa as an IHH voIunloor. In 2007, lo vas a candidalo in llo
gonoraI oIoclions in Turkoy on bolaIf of llo IoIicily Iarly, and, in
746 ||CC rcpcri (Sop. 26, 2010), supr. nolo 83, al 25.
2009, lo vas a candidalo on ils bolaIf in llo oIoclions for mayor of
llo cily of Siirl. Ho boardod llo slip in AnlaIya. According lo llo
IICC roporl dalod Soplombor 27, 2010, ono of lis famiIy mombors
slalod llal lo vanlod lo dio as a s|.|cc!.
2. AIi Haydar Bengi - 39 yoars oId, cilizon of Turkoy. Ho sorvod as
llo clairman of an IsIamic clarilabIo organizalion namod Aydor.
According lo llo IICC roporl dalod Soplombor 27, 2010, Aydor is
a clarilabIo organizalion, and llo Aydor brancl loadod by Bongi
cooporalod vill llo IHH. Bongi vas a mombor of llo IoIicily
Iarly. Ho boardod llo slip in AnlaIya. His vifo and frionds said
llal llo lo lad a slrong dosiro lo dio llo doall of a s|.|cc!.
3. Cevdet KiIicIar - 38 yoars oId, cilizon of Turkoy. Ho vas an IHH
aclivisl vlo vorkod as a vrilor and llo managor of llo IHH's
inlornol silo. Ho boardod llo slip in AnlaIya. On llo fIoliIIa lo
Gaza, lo vas ompIoyod by llo IHH as plolograplor. In a vidoo
lakon aboard llo M.ti M.rm.r., lo is loard saying, "I pray llal
AIIal granl us llo samo good ond as lloso s|.|cc!s."
4. Cetin TnpcungIu - 54 yoars oId, cilizon of Turkoy. Ho vas a
mombor of llo clarilabIo non-profil organizalion, Adyor, a
lumanilarian assislanco organizalion llal cooporalos vill llo
IHH organizalion. Ho is a formor Turkisl clampion in llo marliaI
arl of i.c|ucn!c. Ho parlicipalod in a prior aid convoy lo llo
Gaza Slrip, vlicl lad roaclod II Arisl, vloro il ongagod in a
confronlalion vill llo Igyplian socurily forcos. Ho boardod llo
slip in AnlaIya. According lo llo IICC roporl dalod Soplombor
27, 2010, lo Iofl a Iollor boforo lo doparlod on llo fIoliIIa in vlicl
lo linlod llal lo oxpoclod lo dio as a s|.|cc! and lo caIIod upon
ollors lo aspiro lo a simiIar doall.
5. Necdet YiIdirim - 32 yoars oId, cilizon of Turkoy. Ho vas an IHH
aclivisl in IslanbuI (lis namo appoars on llo Iisl of IHH aclivisls
vlicl vas found on llo M.ti M.rm.r.).
6. Fahri YaIdiz - 43 yoars oId, cilizon of Turkoy. Ho vas an IHH
aclivisl in lis cily, Adiyaman. Sinco 2007, lo vas a socurily guard
al llo IHH conforoncos and lo vas aclivo in lis cily. During
municipaI oIoclions, lo sorvod as llo bodyguard lo llo mayor on
bolaIf of llo Rofal parly, vlicl is llo IsIamic parly of Irbakan.
His namo appoars on llo Iisl of IHH aclivisls vlicl vas found on
llo M.ti M.rm.r.. Ho boardod llo slip in AnlaIya. According lo
llo IICC roporl dalod Soplombor 27, 2010, prior lo doparling on
llo fIoliIIa, lo announcod llal lo vas going lo bo a s|.|cc! and lo
said goodbyo lo lis vifo and lis cliIdron.
7. Cengiz 5nngur - 47 yoars oId, cilizon of Turkoy. Ho vas an aclivisl
in llo IsIamic organizalion Ozgurdor in Izmir. Ho boardod llo
slip in AnlaIya.
8. Cengiz Akyuz - 41 yoars oId, cilizon of Turkoy. Ho vas an IHH
aclivisl. Ho boardod llo slip in AnlaIya. According lo llo IICC
roporl dalod Soplombor 27, 2010, lo joinod llo fIoliIIa logollor
vill llo diroclor of a brancl of llo IHH organizalion, Zakariya
Kanal, and lo Iofl a viII boforo lo boardod llo fIoliIIa.
9. Furkan Dngan - 19 yoars oId, duaI cilizonslip: Turkisl and
Amorican. According lo an arlicIo in a Turkisl novspapor,
"RadicaI", on }uno 16, 2010, lo vrolo in lis diary on llo morning
boforo llo ovonls, ""Tloso aro llo Iasl lours boforo I lako parl in
llo svool oxporionco of bocoming a s|.|cc!. Is lloro anylling
moro boaulifuI llan llal`"
747
AIso, according lo llo IICC roporl of
Soplombor 27, 2010, lis brollor Muslafa said llal lis famiIy vas
nol sorry llal lis brollor lad boon kiIIod as a s|.|cc!.
169. An oxaminalion of llo Iisl of voundod vlicl vas carriod oul
by llo IICC indicalod llal mosl of llo voundod boIongod lo llo IHH
organizalion and lo Turkisl and IsIamic parlios and onlilios. On llo Iisl
of llo voundod, lloro is ono Indonosian, and lloro aro no voundod from
Woslorn counlrios or from llo rosl of llo Arab vorId.
748
Summary of llis parl: Tlo IHH organizalion is ono of llo Ioading
organizalions vlicl look parl in organizing llo fIoliIIa lo llo Gaza Slrip.
Aclivisls in llis organizalion, as voII as ollor voIunloors vlo vanlod
lo lako parl in lumanilarian aclivily on bolaIf of llo Gaza Slrip, voro
rocruilod lo llo fIoliIIa. A coro of aboul 40 aclivisls from llo organizalion
voro oquippod and proparod during llo journoy, parlicuIarIy during llo
lours jusl procoding llo lakoovor, lo rosisl vill forco llo IDI soIdiors'
laking conlroI of llo vossoI. Tlis is indicalod by llo oxlonsivo oquipmonl
vlicl vas brougll on board, by lloir organizing as a group vill dislincl
idonlily signs vlo voro oquippod vill communicalions dovicos and
coId voapons, by llo proparalions vlicl voro undorlakon prior lo llo
lakoovor oporalion, and by lloir aclions during llo ovonl ilsoIf. Tlo
sovorily of llis rosislanco vas nol forosoon by llo IDI, villin llo conloxl
of llo inloIIigonco assossmonl prior lo llo ovonl.
747 |!., al 26.
748 ||CC rcpcri (Sop. 26, 2010), |!., al 4, ||CC rcpcri (}un. 20, 2010), |!., al 1.
The Questinns beInre the Cnmmissinn
170. In llis parl of llo roporl, llo Commission viII oxamino llo
foIIoving IogaI quoslions:
1. Woro llo aclions undorlakon by IsraoI on May 31, 2010 lo inlorcopl
and board llo fIoliIIa vossoIs, oulsido llo bIockadod aroa of llo
Gaza Slrip, in conformily vill inlornalionaI Iav`
2. Was IsraoI's uso of forco againsl llo fIoliIIa parlicipanls during llo
inlorcoplion of llo fIoliIIa vossoIs carriod oul in accordanco vill
inlornalionaI Iav`
3. Was llo pIanning and organizalion of llo IsraoIi miIilary oporalion
carriod oul in conformily vill inlornalionaI Iav`
CnnInrmity between the Actinns IsraeI Tnnk
tn EnInrce the BInckade nn May 31, 2010, and
InternatinnaI Law
The Law Gnverning the EnInrcement nI the BInckade
171. As discussod in Claplor A of llis roporl, IsraoI oslabIislod llo
navaI bIockado as parl of ils inlornalionaI armod confIicl vill llo Hamas.
Tlo IogaI rogimo govorning llo oslabIislmonl and onforcomonl of sucl
a bIockado is llo Iavs of navaI varfaro. Tlo roIovanl IogaI ruIos can bo
found in cuslomary inlornalionaI lumanilarian Iav, vlicl lavo IargoIy
boon oulIinod in llo S.n Rcmc M.nu.|. ArlicIo 97 of llo manuaI slalos: A
bIockado may bo onforcod and mainlainod by a combinalion of |cgiiim.ic
mci|c!s .n! mc.ns c| u.r|.rc providod llis combinalion doos nol rosuIl in
acls inconsislonl vill llo ruIos sol oul in llis documonl.
749
|omplasis
addodj
An allompl lo broacl a proporIy oslabIislod bIockado is a non-
noulraI acl, rosuIling in a Ioss of llo proloclion and roIalivo froodom of
navigalion avaiIabIo lo noulraI slipping undor llo Iav of llo soa. As
a rosuIl, a slip llal allompls lo broacl a bIockado bocomos subjocl lo
llo ruIos of inlornalionaI lumanilarian Iav govorning llo conducl of
losliIilios.
749 S.n Rcmc M.nu.|, supr. nolo 110, al arlicIo 97.
EnInrcement in InternatinnaI Waters
172. Tlo IsraoIi armod forcos boardod llo M.ti M.rm.r. and llo ollor
fIoliIIa vossoIs 70-100 naulicaI miIos from llo Gaza coasl oulsido llo
bIockadod aroa,
750
i.o., in inlornalionaI valors (for a map of llo bIockadod
aroa, soo annox "I").
Tloro las boon an ongoing inlornalionaI dobalo rogarding llo
Iocalion al vlicl slips sooking lo broacl a bIockado may bo boardod.
Tlo koy issuo in llis dobalo is nol vlollor sucl boarding may lako pIaco
in inlornalionaI valors, bul rallor al vlal dislanco oulsido llo bIockadod
aroa a parly may board a vossoI allompling lo broacl llo bIockado.
173. According lo cuslomary inlornalionaI lumanilarian Iav, an
allompl lo broacl a bIockado occurs vlon a slip is on a courso doslinod
for a bIockadod porl or is anclorod or lovoring oulsido a bIockadod aroa
so llal il can ovado llo bIockading forcos.
751
As llo US Ccmm.n!crs N.t.|
H.n!occ| nolos, |kjnovIodgo of llo oxislonco of llo bIockado is ossonliaI
lo llo offonsos of broacl of bIockado and allomplod broacl of bIockado.
Tloroforo, if il can bo oslabIislod llal a slip is purposofuIIy allompling lo
broacl a bIockado, llal slip is subjocl lo capluro vlorovor il is Iocalod.
752

Tlo slalod goaI of llo fIoliIIa vas lo broacl llo bIockado.
753
Honco, llo
fIoliIIa organizors and parlicipanls musl lavo boon avaro of llo oxislonco
of llo Gaza bIockado and llal lloy voro on courso lovards llo bIockadod
aroa.
174. Tlo maloriaI boforo llo Commission domonslralos llal llo IsraoIi
forcos closo lo onforco llo bIockado oulsido llo bIockadod aroa on llo
basis of lvo roasons. Iirsl, llo inloIIigonco assossmonl indicalod llal llo
Hamas voro organizing smaII boals lo mool llo fIoliIIa, and lloro vas
concorn llal lloso boals vouId poso a socurily risk if llo fIoliIIa vossoIs
voro inlorcoplod cIoso lo llo Gaza coaslIino.
754
Socond, as vas oulIinod
in llo loslimony of llo Cliof of Slaff, Iioulonanl-GonoraI Aslkonazi, llo
inlonlion of llo IsraoIi forcos vas lo capluro llo vossoIs vill llo minimum
uso of forco, and, during sucl an oporalion, lloro is a groal advanlago lo
oporaling undor llo covor of darknoss.
755
As a rosuIl, llo oporalion vas
carriod oul jusl boforo davn, al vlicl poinl llo fIoliIIa vossoIs voro sliII
751 Soo Hcinisc|c| tcn Hcincgg, |P|I, supr. nolo 91, al para. 43.
752 Soo S.n Rcmc M.nu.|, supr. nolo 110, al arlicIo 98. Soo aIso i|c 1909 Icn!cn Dcc|.r.iicn, arl.
20, U. S. N.t, 1|c Ccmm.n!crs H.n!occ|, supr. nolo 92, al 7-8, para. 7.7.4.
753 Soo |HH I|cii||. C.mp.ign Summ.r, supr. nolo 209, al 26.
Iocalod oulsido llo bIockadod aroa. Tloso grounds conslilulo vaIid and
roasonabIo oporalionaI considoralions faIIing villin llo cuslomary ruIos
rogarding llo dislanco from llo coasl llal a bIockado can bo onforcod.
175. Tlo Commission concIudos llal llo IsraoIi armod forcos voro
juslifiod in boarding llo fIoliIIa vossoIs in inlornalionaI valors undor
llo ruIos of inlornalionaI lumanilarian Iav, givon (i) lloir Iocalion
and announcod doslinalion,
756
(ii) llo pubIic pronouncomonls by llo
fIoliIIa organizors and parlicipanls rogarding lloir inlonlion lo broacl
llo bIockado,
757
and (iii) llo rofusaI of llo slips' caplains lo accopl llo
invilalion lo aIlor lloir courso lo Asldod aflor lloy voro varnod by llo
IDI.
758
Tloroforo, llo inlorcoplion of llo fIoliIIa vossoIs soavard of llo
announcod bIockado vas IavfuI.
The Capture nI the FIntiIIa VesseIs
176. Cuslomary inlornalionaI Iav providos llal a bIockading parly is
onlilIod lo provonl aII vossoIs from onloring or Ioaving llo bIockadod aroa.
Morclanl vossoIs boIiovod on roasonabIo grounds lo bo broacling llo
bIockado may bo caplurod.
759
Boforo capluring a noulraI vossoI, lloro may
bo a nood lo vorify ils noulraI slalus and ils inlonlions.
760
Al llo oulsol, il
slouId bo nolod llal lloro is an imporlanl dislinclion bolvoon a "capluro"
and an "allack" of sucl vossoIs. According lo ArlicIo 67(a) of llo S.n Rcmc
M.nu.|, morclanl vossoIs vlicl aro boIiovod on roasonabIo grounds lo bo
broacling llo bIockado may nol bo allackod unIoss, aflor prior varning,
"lloy inlonlionaIIy and cIoarIy rofuso lo slop, or inicniicn.|| .n! c|c.r|
rcsisi visil, soarcl or c.piurc.
761
|omplasis addodj NoulraI morclanl
vossoIs do nol lavo a rigll lo rosisl capluro.
762
As llo IncycIopodia of
756 |!.
757 |!.
758 |!.
759 S.n Rcmc M.nu.|, supr. nolo 110, arl. 98, 146 (f), Soo aIso E"-1$,"-F 0/, :*-3B9$ *;
G*1$"#"$",1, supr. nolo 86, al 106 (concIuding llal llo sinking of noulraI morclanl vossoIs
villoul varning is unIavfuI).
760 Soo I88,-/,"., supr. nolo 86, al 856 (llo purposo of ascorlaining vlollor lloso vossoIs
roaIIy boIong lo llo morclanl marino of noulraIs, and, if llis is found lo bo llo caso,
vlollor lloy aro allompling lo broak bIockado, or aro carrying conlraband, or rondoring
unnoulraI sorvico lo llo onomy. |.j ils r.iscn !circ is so obvious llal il las Iong boon
univorsaIIy rocognizod in praclico. Il is indood llo onIy moans by vlicl boIIigoronls aro
abIo lo ascorlain vlollor noulraI morclanlmon inlond lo bring assislanco lo llo onomy
and lo rondor lim unnoulraI sorvico.).
761 S.n Rcmc M.nu.|, supr. nolo 110, al arl. 67.
762 ]@C@ 0B9M,&F 0/, 6%H *; C%& %-3 =,B$&%#"$' %$ A,% 336 (1955), Soo aIso :*#*.4*1F
0/, 5-$,&-%$"*-%# 6%H *; $/, A,%, supr. nolo 94, al 768, para. 884.
IubIic InlornalionaI Iav nolos in rospocl of rosisling capluro during llo
onforcomonl of a bIockado:
'CIoar rosislanco prosupposos llal lloy acl in a mannor llal las,
or may lavo, an impoding or simiIar offocl on llo inlorcopling
forcos. Tloroforo, a moro clango of courso in ordor lo oscapo is
nol sufficionl. An acl of cIoar rosislanco againsl inlorcoplion or
capluro is considorod lo bo an offoclivo conlribulion lo onomy
miIilary aclion by purposo or uso.
763
Onco llo llrosloId of "cIoar rosislanco" las boon roaclod, llo slip
may bo allackod IavfuIIy. An allack undor inlornalionaI lumanilarian
Iav moans acls of vioIonco againsl llo advorsary, vlollor in offonco or
in dofonco.
764

177. Undor inlornalionaI lumanilarian Iav, onIy miIilary objoclivos,
combalanls and civiIians diroclIy parlicipaling in losliIilios may bo
allackod. Tlo dofinilion of miIilary objoclivo is sol forll in AddilionaI
IrolocoI I, arlicIo 52.2:
In so far as objocls aro concornod, miIilary objoclivos aro Iimilod
lo lloso objocls vlicl by lloir naluro, Iocalion, purposo or uso
mako an offoclivo conlribulion lo miIilary aclion and vloso
lolaI or parliaI doslruclion, capluro or noulraIizalion, in llo
circumslancos ruIing al llo limo, offors a dofinilo miIilary
advanlago.
765
Tlis dofinilion is gonoraIIy doomod rofIoclivo of cuslomary
inlornalionaI lumanilarian Iav. In llo conloxl of a bIockado, vossoIs
broacling llo bIockado and rosisling capluro quaIify as miIilary objoclivos
by virluo of llo facl llal lloir uso makos an offoclivo conlribulion lo
miIilary aclion, sinco using lloso vossoIs lo broacl llo bIockado rondors
il inoffoclivo.
766
Tlal a vossoI broacling a bIockado is a miIilary objoclivo
can aIso bo dorivod from llo S.n Rcmc M.nu.|, vlicl slalos llal morclanl
vossoIs llal aro boIiovod on roasonabIo grounds lo bo broacling a bIockado
and llal, aflor prior varning, cIoarIy rosisl capluro may bo allackod,
767

bocauso onIy vlon an objocl salisfios llo miIilary objoclivo criloria, may
il bo allackod.
Tlo rosislanco offorod by porsons on board llo M.ti M.rm.r.
(ovon boforo llo allompl lo fasl-ropo a boarding loam onlo llo roof) vas
sufficionl lo lavo aIIovod llo IsraoIi Commandor lo concIudo llal llo
764 A!!iiicn.| Prciccc| |, supr. nolo 292, al arl. 49(1).
765 |!., al arl. 52(2).
767 S.n Rcmc M.nu.|, supr. nolo 110, al arl. 98.
slip vas cIoarIy rosisling capluro, lloroby making il a miIilary objoclivo.
As a rosuIl, pursuanl lo inlornalionaI lumanilarian Iav, llal vossoI
couId lavo boon allackod. NovorlloIoss, llo Commission is of llo viov
llal llo IsraoIi forcos did nci allack llo fIoliIIa vossoIs. In ollor vords,
lloy did nol uso forco or vioIonco againsl llo s|ips. Tloir offorls voro
focusod oxcIusivoIy on capluring llo slips and divorling llom from lloir
doslinalion.
178. Tlo noxl issuo lo bo dolorminod is vlollor llo moans llal IsraoI
usod lo porform llo capluro of llo fIoliIIa vossoIs voro in accordanco vill
llo Iav. Tlo oplions avaiIabIo lo Slalo aullorilios sooking lo slop a vossoI
al soa aro in facl quilo Iimilod. Tlo praclicaI claIIongos aro nol uniquo lo
armod confIicl. Oporalions lo slop morclanl vossoIs al soa aro carriod oul
on a roguIar basis, oflon by Slalo navaI forcos ongagod in Iav onforcomonl
(i.o., counlor-drug oporalions, fislorios palroIs, cusloms, immigralion) or
lloso acling lo provonl llo proIiforalion of voapons of mass doslruclion
(o.g., in accordanco vill llo IroIiforalion Socurily Inilialivo (ISI)).
768

179. In a Iav onforcomonl conloxl, llo dislinclion bolvoon a "capluro"
and an "allack" is nol mado, sinco an "allack" is nol conlompIalod villin
llal framovork. NonolloIoss, llo laclics appIiod in llo Iav onforcomonl
conloxl lo slop a vossoI sorvo as a roIovanl comparison lo llo allompl
lo capluro a vossoI vliIo onforcing a bIockado during an armod confIicl
vill rospocl lo llo issuo of llo approprialo oscaIalion of forco. Tlo
obIigalion undor inlornalionaI lumanilarian Iav lo allompl lo capluro a
noulraI vossoI boforo allacking il vlon onforcing a bIockado is basod on
llo principIo of using forco onIy vlon nocossary. Tlis principIo is aIso
appIicabIo in a Iav onforcomonl conloxl, vloro llo nocossily for using
forco musl bo domonslralod by oslabIisling llal Ioss forcofuI moans voro
allomplod and faiIod, or llal sucl moans vouId lavo boon impossibIo or
fuliIo undor llo circumslancos.
769

TypicaIIy, llo oscaIalion of llo uso of forco during a Iav onforcomonl
oporalion commoncos vill idonlifying a slip and ils inlonlions, progrossos
lo llo firing of varning slols, and llon, as a Iasl rosorl, possibIy using
disabIing firo.
770
Tlo roquirod soquonco of moasuros boforo rosorling lo
llo uso of forco bogins vill idonlifying llo onforcing vossoI and making
ils inlonlions cIoar by giving a visuaI or audilory signaI lo slop.
771
Tlo
768 AIIon, Iimiis cn i|c Usc c| Icrcc, supr. nolo 337, al 105-106.
769 |!., al 99-100, Soo aIso E@X@ I?:*--,##F 0/, 5-;#B,-9, *; 6%H *- A,% X*H,& 65
(1975).
770 AIIon, Iimiis cn i|c Usc c| Icrcc, supr. nolo 337, al 100.
771 |!., al 99-100. In rospocl of llo Gaza fIoliIIa, llo IsraoIi aullorilios idonlifiod lloir vossoIs
as onforcing llo bIockado lo llo fIoliIIa vossoIs, and lloy providod llo fIoliIIa vossoIs vill
US Navy MIO Doclrino providos for llo uso of "non-vioIonl" signaIs and
manouvors as a firsl slop boforo rosorling lo forco.
772

Tlo noxl slop in llo approprialo IovoI of forco againsl a non-
compIianl vossoI incIudos "dolorronco" or varning moasuros, sucl as
firing varning slols.
773
Tlo objoclivo of varning slols is lo provido a cIoar
signaI lo llo docision-makors on board llo offonding slip llal lloro is an
inlonlion lo oxorl forco if llo slip doos nol slop. A roIovanl oxampIo in
llis conloxl is llo Amorican caso, Icuin t. U.S.,
774
in vlicl llo US Coasl
Guard lad usod firoarms and uninlonlionaIIy kiIIod a crov mombor on
llo suspocl slip. A difforonl crov mombor forcofuIIy rosislod llo lakoovor
of llo slip and, in llo subsoquonl procoodings againsl lim, lo cIaimod
llal lis uso of forco vas juslifiod sinco no varning slols lad boon firod.
Tlo courl ruIod llal ovon llougl no varning slols lad boon firod, llo
dofondanl vas voII avaro of llo facl llal lloro vas a pursuil of llo slip
vill llo inlonlion of slopping il by forco, vlicl vas sufficionl lo rondor
llo dofondanl's uso of forco unjuslifiod.
775

Aflor llo uso of "dolorronco" moasuros, llo noxl IovoI incIudos a
slov of forco, sucl as disabIing firo, vlicl moans ompIoying firoarms
lo slop llo slip villoul using forco againsl llo passongors llomsoIvos.
776

Tlo approprialonoss of using disabIing firo doponds upon llo naluro of llo
onforcomonl aclion boing undorlakon. Ior inslanco, il las boon suggoslod
llal disabIing firo is IavfuI in a ISI conloxl bocauso of llo imporlanco
lo counlor llo proIiforalion of voapons of mass doslruclion,
777
and il is
corlainIy conlompIalod in llo conloxl of Marilimo Inlordiclion Oporalions
(MIO) lo, inicr .|i., onforco UN Socurily CounciI rosoIulions.
778

180. Tlo uso of disabIing firo is indood an oplion vlon onforcing a
bIockado during an armod confIicl, parlicuIarIy in Iigll of llo facl
llo roquirod informalion aboul llo IsraoIi inlonlions lo provonl llo fIoliIIa vossoIs from
broacling llo bIockado.
772 |!., al 99-100.
773 |!., al 100.
774 Iovin v. U.S., 62 I. 2d 619 (1933).
775 As slalod proviousIy, IsraoIi aullorilios lad mado lloir inlonlions lo laIl llo fIoliIIa
vossoIs cIoar lo llo caplains of llo vossoIs. Sinco llo IsraoIi armod forcos did nol inlond
lo uso forco againsl llo vossoIs llomsoIvos, vlicl viII bo furllor oIaboralod upon boIov,
lloro vas no roquiromonl lo issuo varning signaIs boforo llo boarding.
777 |!., al 110-111.
778 Ior a dofinilion of MIO soo op. cil. Soo WoIff HoinlscloI von Hoinogg, M.riiimc |nicrccpiicn/
|nicr!iciicn Opcr.iicns in Tlo Handbook of InlornalionaI Iav of MiIilary Oporalions,
393, para. 20.12 (2010) (vloro llo soquonco is oulIinod a slol boing firod, bul nol in llo
diroclion of llo slip, a socond varning slol across llo bov, and finaIIy a slol inlo llo
ruddor).
llal rosislanco lo capluro rondors a vossoI a miIilary objoclivo. Tlo
uso of disabIing firo in llis conloxl vouId conslilulo an "allack" undor
inlornalionaI lumanilarian Iav.
779
Al llo samo limo, lovovor, ils uso
vouId lavo boon boll IavfuI and a roasonabIo oscaIalion in forco, prior
lo considoring an allack llal couId sink llo vossoI.
780

Tlo ovidonco brougll boforo llo Commission domonslralos llal,
llrougloul llo pIanning procoss, il vas cIoar lo lloso pIanning llo
oporalion llal vioIonco vouId nol bo usod againsl llo fIoliIIa vossoIs, i.o.,
llo acluaI slips llomsoIvos. Irom llo ovidonco, il appoars llal among
llo faclors llal voiglod loaviIy on lloso vlo pIannod llo oporalion
againsl llo uso of forco vas llo prosonco of ovor 500 civiIians on board
llo M.ti M.rm.r. and a significanl numbor of civiIians on llo romaining
slips.
781
IolonliaI coIIaloraI casuaIlios and damago lad lo bo faclorod
inlo llo considoralion. Iurllormoro, llo uso of disabIing firo vouId nol
nocossariIy lavo boon offoclivo undor llo circumslancos, bocauso llo
lypicaI morclanl slip is oflon abIo lo survivo ovon proIongod disabIing firo
by llo voapons and ammunilion aIIovod by llo uso of forco doclrinos.
782

181. WliIo llo IsraoIi aullorilios usod Ioss forco llan vouId lavo boon
pormissibIo undor inlornalionaI Iav, anollor issuo, vlicl las boon llo
subjocl of considorabIo dobalo in llo modia and oIsovloro, is vlollor
lloy slouId lavo usod inlormodialo IovoIs of forco. Ono quoslion is
vlollor lloy slouId lavo closon lo uso valor cannons or simiIar dovicos
lo oillor causo llo vossoI lo loavo lo or lo croalo a sloriIo onvironmonl
on llo lop docks of llo M.ti M.rm.r., vlicl vouId lavo pormillod llo
IsraoIi navy commandoos lo board or Iand on llo slip villoul boing
llroalonod by any of ils passongors. WliIo lloso suggoslions aro allraclivo
in lloory, llo roaIily is llal llo loclnicaI abiIily lo compoI a fIooing vossoI
lo slop is oxcoodingIy Iimilod. As nolod in ono sludy of llo uso of forco in
a marilimo onvironmonl:
A varioly of Iov-IovoI forco laclics . lavo boon lriod ovor llo
yoars, incIuding Iov IovoI passos by aircrafl, plysicaIIy bIocking
or ovon slouIdoring llo fIooing vossoI, dirocling firo loso
slroams inlo llo fIooing vossoIs oxlausl slack lo fIood llo ongino,
780 AIIon, Iimiis cn i|c Usc c| Icrcc, supr. nolo 337, al 104 (DisabIing firo rofors lo uso of
voapons lo disabIo llo slip villoul risk lo llo crov).
781 Tlo proloclion of a passongor vossoI is rofIoclod in S.n Rcmc M.nu.|, supr. nolo 110, al
RuIo 152, vlicl prolibils llo doslruclion of caplurod noulraI passongor vossoIs carrying
civiIian passongors al soa.
dopIoying nols, Iinos and ollor dovicos dosignod lo onlangIo llo
vossoIs propoIIors, and sovoring llo vossoIs fuoI Iino.
783
Tloso laclics lavo onjoyod onIy Iimilod succoss and oflon poso
considorabIo dangor lo llo slip, llo crov, and any passongors on board.
784

Tlo IsraoIi navy lad aIroady oxporioncod an incidonl in Docombor 2009
vloro significanl damago vas causod vlon a varslip coIIidod vill a
roIalivoIy smaII yacll llal vas sooking lo broacl llo Gaza bIockado.
785

Tlo Iargo sizo of llo M.ti M.rm.r. and a numbor of llo ollor fIoliIIa
vossoIs mado slouIdoring (i.o., brusling up againsl llo sido of llo slip)
of lloso vossoIs impraclicaI and aIso vory dangorous for IsraoIi forcos.
182. Tlo laclics ompIoyod lo inlorcopl and board llo vossoI by llo
IsraoIi aullorilios vas lo fasl-ropo soIdiors from loIicoplors dovn lo
llo roof of llo M.ti M.rm.r. combinod vill an allompl lo board from
Morona spoodboals. Tlo docision lo lry lo capluro llo vossoIs by fasl-
roping from loIicoplors vas infIuoncod by llo dogroo of rosislanco
anlicipalod from llo subjocl vossoI. SpociaI Iorcos lrainod loams aro oflon
usod vlon a boarding is anlicipalod lo bo opposod or non-compIianl.
786

Tlo Slayoyol 13, an IsraoIi navaI commando forco, is lrainod in vorlicaI
onvoIopmonl from loIicoplors and vas llus abIo lo porform llo difficuIl
oporalion.
Tloso laclics can bo comparod lo lloso ompIoyod by CoaIilion navaI
forcos conducling MIO during llo GuIf War againsl Iraq in 1990-1991. Il
bocamo ovidonl during llo courso of lloso oporalions llal Iargo morclanl
vossoIs voro vory difficuIl lo disabIo villoul rocourso lo Iargo caIibor
voapons vill llo accompanying risk of casuaIlios, a polonliaI nood for a
soarcl and roscuo oporalion, and llo risk of onvironmonlaI damago duo
lo llo roIoaso of oiI inlo llo valors. In llal silualion, ollor laclics, sucl as
slouIdoring a Iargo morclanl vossoI, voro nol praclicaIIy foasibIo for
783 |!., al 101.
784 Transcripl of sossion no. 13 "Toslimony of llo Cliof of Slaff, opon door" (Ocl. 24, 2010), al
14 |loroinaflor C|ic| c| Si.||s Opcn Dccr 1csiimcn c| 24.10.2010j.
785 MAG Pcsiiicn P.pcr, supr. nolo 1, al 40.
786 Soo ]B#,1 *; Y-7%7,.,-$ G%-34**M, InlornalionaI Inslilulo of Humanilarian Iav,
Annox D, 81, 84 (Nov. 2009) |loroinaflor 1|c RO| H.n!occ|j .t.i|.o|c .i vvv.usnvc.
odu/golallaclmonl/7b0d0f70-bb07-48f2-af0a-7474o92d0bb0/San-Romo-ROI-Handbook
(lloro aro llroo lypos of boardings in oslabIislod marilimo doclrino: opposod boarding
a boarding vloro llo maslor or crov las mado il cIoar llal slops viII bo lakon lo provonl
llo boarding, non-compIianl boarding a boarding vloro agroomonl lo board las nol
boon oblainod, and compIianl boarding a boarding vloro llo maslor and crov of llo
vossoI cooporalo).
llin-skinnod varslips and lloy raisod llo possibiIily of rondoring llo
largol vossoI a risk lo navigalion.
787
As a rosuIl:
Tlo laclic adoplod . vas lo surround a rocaIcilranl slip vill a
numbor of coaIilion varslips. If lloso couId nol compoI obodionco
by radio, voico caIIs, or varning firo, a coordinalod assauIl vas
conduclod by spociaIIy lrainod forcos Iovorod from ono or moro
loIicoplors, vill ollor loIicoplors providing survoiIIanco and
polonliaI covoring firo. Onco conlroI vas oslabIislod, navaI
boarding parlios conduclod plysicaI soarclos of slips, cargoos,
and documonlalion.
788
Tlis loclniquo vas aIso dopIoyod in vlal is porlaps ono of llo
bosl knovn Woapons of Mass Doslruclion (WMD) boardings, llo 2002
inlordiclion of llo M/V So San by Spanisl navaI forcos. During llal
oporalion, a loIicoplor-borno SpociaI Oporalions forco boarding loam vas
uIlimaloIy dopIoyod lo slop llo vossoI. Tlis is an aroa vloro llo laclics
aro voII oslabIislod and undorslood by navaI forcos.
789

ConsoquonlIy, llo docision lo lavo llo Slayoyol 13 board llo M.ti
M.rm.r. and llo ollor fIoliIIa vossoIs by loIicoplor and from Morona
spoodboals vas fuIIy consislonl vill oslabIislod navaI praclico, vlollor
onforcing a bIockado or carrying oul marilimo Iav onforcomonl.
183. In concIusion, llo Commission las found llal llo fIoliIIa vossoIs
voro allompling lo broacl llo bIockado and IsraoIi armod forcos voro
lloroforo juslifiod in capluring llom in ordor lo onforco llo bIockado.
By cIoarIy rosisling capluro, llo M.ti M.rm.r. lad bocomo a miIilary
objoclivo. Aflor prior varning, llo IsraoIi forcos couId lavo considorod
using disabIing firo againsl llal slip. Hovovor, if llal oplion or any ollor
oplion llal invoIvod llo uso of armod forco againsl llo slip lad boon
ompIoyod, il vouId lavo causod a significanl risk of larm lo llo passongors
aboard llo slip (undor inlornalionaI lumanilarian Iav, "coIIaloraI
damago"). Tloroforo, llo oplion of fasl-roping navaI commandoos onlo
llo M.ti M.rm.r. roprosonlod an inlornalionaIIy rocognizod moans by
vlicl lo minimizo llo polonliaI for civiIian casuaIlios or damago lo
civiIian objocls llal couId lavo occurrod if armod forco lad boon usod
againsl llo slip ilsoIf. Il romains uncIoar vlollor llo majorily of llo
passongors on llo vossoIs undorslood llo Iimilod oplions avaiIabIo lo llo
IsraoIi miIilary forcos vlon onforcing llo bIockado, and llo risk llal llo
787 Soo }amos GoIdrick, M.riiimc S.nciicns |n|crccmcni Ag.insi |r., in =%+%# L#*9M%3,1
%-3 A,%8*H,&, supr. nolo 87, al 203-204.
788 |!., al 204.
789 AIIon, Iimiis cn i|c Usc c| Icrcc, supr. nolo 337, al 105-106.
IIoliIIa organizors voro oxposing llom aII lo by allompling lo broacl llo
bIockado.
In Iigll of llis concIusion, llo anaIysis viII nov lurn lo llo uso of
forco againsl porsons on board llo fIoliIIa vossoIs.
Law AppIicabIe tn the Use nI Fnrce against Persnns nn
Bnard the FIntiIIa VesseIs
App|ic.iicn c| |nicrn.iicn.| Hum.nii.ri.n I.u cr Hum.n Rig|is I.u
184. In llo conloxl of an armod confIicl, a koy issuo is vlal principIos
govorn llo uso of forco againsl civiIians: inlornalionaI lumanilarian Iav
or luman riglls Iav` As las boon nolod by llo InlornalionaI Courl of
}uslico in llo W.|| caso, llo inlorfaco bolvoon lloso lvo normalivo rogimos
is inlricalo: |Tjloro aro llus llroo possibIo silualions: somo riglls may
bo oxcIusivoIy mallors of inlornalionaI lumanilarian Iav, ollors may bo
oxcIusivoIy mallors of luman riglls Iav, yol ollors may bo mallors of
boll lloso branclos of inlornalionaI Iav.
790

185. As discussod in claplor A of llis roporl, lloro is considorabIo
ongoing dobalo aboul llo inlorfaco bolvoon inlornalionaI lumanilarian
Iav and luman riglls Iav.
791
Hovovor, oflon Iosl in llo diaIoguo
rogarding llo appIicabIo framovork is llo facl llal lumanilarian Iav
rofIocls many of llo norms llal aro aIso rocognizod as boing parl of
luman riglls Iav.
792
Tlis is ovidonl vlon considoring, for inslanco, llo
individuaI rigll of soIf-dofonso. MiIilary and civiIian porsonnoI lavo llo
rigll lo prolocl lloir ovn Iivos, vlollor lloy aro oporaling in an armod
confIicl or in poacolimo.
793
In addilion, miIilary forcos lavo aIvays lad lo
790 1|c W.|| Caso, supr. nolo 130, al 178, para. 106.
791 Soo, o.g., David Krolzmor, 1.rgcic! Ki||ing c| Suspccic! 1crrcrisis. |xir.-ju!ici.| |xccuiicns
cr Icgiiim.ic Mc.ns c| Dc|cnsc 16 YB&@ Z@ 5-$?#@ 6@ 171 (2005), Irancoiso }. Hampson,
1|c Rc|.iicns|ip Bciuccn |nicrn.iicn.| Hum.nii.ri.n I.u An! Hum.n Rig|is I.u Ircm 1|c
Pcrspcciitc O| A Hum.n Rig|is 1rc.i Bc!, 90 5-$?# ],+@ ],3 :&*11 549 (2008), YuvaI
Slany, 1|c I.u App|ic.o|c ic Ncn-Occupic! G.z.. A Ccmmcni cn A| B.ssicuni t. 1|c Primc
Minisicr c| |sr.c|, 37 51&@ 6@ ],+@ 101 (2009), YuvaI Slany & Orna Bon-NaflaIi, Iiting in
Dcni.|. 1|c App|ic.iicn c| Hum.n Rig|is in i|c Occupic! 1crriicrics, 37 51&@ 6@ ],+@ 17 (2003-
04) (supporling llo appIicalion of luman riglls lo aII acls of Slalos, ovon oulsido lloir ovn
lorrilorios, and lovards individuaIs llal aro nol lloir cilizons).
792 Soo, o.g., A!!iiicn.| Prciccc| |, supr. nolo 292, al arl. 75 (oulIining fundamonlaI riglls
avaiIabIo lo porsons vlo aro in llo povor of a Iarly lo llo confIicl. Tloso riglls found
undor inlornalionaI lumanilarian Iav rofIocl luman riglls norms, Soo aIso H.m!.n t.
Rums|c|!, supr. nolo 137, al 71 (vloro a pIuraIily of llo Unilod Slalos Supromo Courl loId
llis provision vas cuslomary inlornalionaI Iav)).
793 Soo Irosoculor v. Dario Kordic, Mario Corkoz, Caso No. IT-95-14/2-T, }udgmonl, para. 451
doaI vill civiIians, incIuding during llo poIicing of occupiod lorrilorios
vlon carrying oul lloir inlornalionaI lumanilarian Iav rosponsibiIilios
lo mainlain pubIic ordor and safoly.
794

186. AIllougl lloro aro sclooIs of llougll llal IargoIy favor oxlonsivo
appIicabiIily of luman riglls Iav, llis approacl is nol univorsaIIy
accoplod.
795
Ior oxampIo, noillor IsraoI nor llo Unilod Slalos agroos vill
a broad oxlra-lorriloriaI appIicalion of luman riglls Iav.
796
Tlo issuo of
vlollor, or llo dogroo lo vlicl, lloro is oxlra-lorriloriaI appIicalion of
luman riglls Iav is parlicuIarIy roIovanl lo llo onforcomonl of llo Gaza
(Iob. 26, 2001) (noling llal llo principIo of soIf-dofonco onslrinod in llo ICC Slalulo, al arl.
31(1)(c) rofIocls provisions found in mosl nalionaI criminaI codos and may bo rogardod
as consliluling a ruIo of cuslomary inlornalionaI Iav), Iurllor, llo rigll lo soIf-dofonso is
rofIoclod in Gonova Convonlion I, al arl. 22 (1) rogarding llo arming of modicaI porsonnoI
and arl. 22(2) for armod pickols, sonlrios or oscorls al modicaI unils or oslabIislmonls,
Soo aIso AI I, al arl. 65(1) (rogarding llo arming for soIf-dofonso of civiIian civiI dofonco
porsonnoI), arl. 67. (rogarding mombors of llo armod forcos and miIilary unils assignod
lo civiI dofonco organizalions), and 1|c UK M.nu.|, supr. nolo 113, al 40, para. 4.3.7
(indicaling llal civiIians accompanying a miIilary forcos slouId bo issuod vill smaII
arms for soIf-dofonco purposos onIy).
794 Soo, o.g., 1907 Haguo RoguIalions, Arl. 43 (providing llal llo occupying povor slaII lako
aII llo moasuros in lis povor lo rosloro, and onsuro, as far as possibIo, pubIic ordor and
safoly |civiI Iifoj, vliIo rospocling, unIoss absoIuloIy provonlod, llo Iavs in forco in llo
counlry. Tlo roforonco lo civiI Iifo comos from llo officiaI Ironcl vorsion, vlicl las
boon suggoslod vas incorroclIy plrasod as safoly in llo firsl IngIisl lransIalion), Soo
aIso Y'%# L,-+,-"1$"F 0/, 5-$,&-%$"*-%# 6%H *; I99B8%$"*- 10-11 (2004).
795 Soo, o.g., 6B4,##F YW$&%$,&&"$*&"%# <1, *; \*&9,, supr. nolo 149, al 193-235 (2010)
(for an anaIysis favoring llo univorsaI appIicalion of luman riglls Iav). To llo oxlonl
llo nolion of univorsaI appIicalion of llo InlornalionaI Covonanl on CiviI and IoIilicaI
Riglls is basod on inlorprolalions of llo Human Riglls Commission, incIuding ils Gcncr.|
Ccmmcni 31, N.iurc c| i|c Gcncr.| Icg.| Oo|ig.iicn cn Si.ics P.riics ic i|c Cctcn.ni, UN Doc.
CCIR/C/21/Rov. 1/Add.13 (2004), caro musl bo lakon in vioving sucl inlorprolalions
as Iav. Soo aIso Amncsi |nicrn.iicn.| t. C|ic| c| i|c Dc|cnsc Si.|| |cr i|c C.n.!i.n Icrccs
T-324-07 Iod. Cl. TD. para. 239 (2008) (Insofar as llo commonlarios of llo Unilod Nalions
Commilloos aro concornod, as llo rospondonls obsorvod, lloso aro rocommondalions
mado by groups vill advocacy rosponsibiIilios. WliIo lloy cIoarIy rofIocl llo viovs of
knovIodgoabIo individuaIs, lloy do nol rofIocl llo curronl slalo of inlornalionaI Iav, bul
moro llo diroclion llal lloso groups boIiovo llo Iav slouId lako in llo fuluro).
796 6B4,##F YW$&%$,&&"$*&"%# <1, *; \*&9,, supr. nolo 149, al 197-198 (discussing llo
Unilod Slalos posilion). Ior llo officiaI IsraoIi posilion, soo, o.g., IsraoI Minislry of Ioroign
Affairs, Icg.| A!tiscr c| i|c |sr.c| Minisir c| Icrcign A||.irs cn i|c App|ic.oi|ii c| i|c |CCPR
ic i|c Currcni Siiu.iicn in i|c Wcsi B.n| .n! G.z. Sirip, Rcspcnsc c| Mr. A|.n B.|cr, Icg.|
A!tiscr c| i|c |sr.c| Minisir c| Icrcign A||.irs, On i|c App|ic.oi|ii c| i|c |CCPR ic i|c Currcni
Siiu.iicn in i|c Wcsi B.n| .n! G.z. Sirip (May 15, 1998) .t.i|.o|c .i vvv.mfa.gov.iI/MIA/
MIAArclivo/1990_1999/1998/7/IogaI+Advisor+of+llo+IsraoI+Minislry+of+Ioroign+
Af.llm, Soo aIso Irancoiso }. Hampson, 1|c Rc|.iicns|ip, supr. nolo 791, al 550, MiclaoI
Donnis, |Cj A!tiscr Opinicn cn Ccnsiruciicn c| . W.|| in i|c Occupic! P.|csiini.n 1crriicr.
App|ic.iicn c| Hum.n Rig|is 1rc.iics |xir.icrriicri.|| in 1imcs c| Armc! Ccn||ici .n! Mi|ii.r
Occup.iicn, 99 2.@ Z@ 5-$?#@ 6@ 119 (2005).
navaI bIockado on May 31, 2010, sinco il look pIaco on llo ligl soas,
oulsido llo lorrilory of llo IsraoIi Slalo.
RoconlIy, llo Iuropoan Courl of Human Riglls ruIod in llo C.sc
c| Mc!tc!ct .n! Oi|crs t. Ir.ncc
797
llal llo inlorcoplion of a vossoI on
llo ligl soas by a Ironcl varslip in a counlor-drug Iav onforcomonl
oporalion did ongago luman riglls jurisdiclion aflor "fuII and oxcIusivo
conlroI" ovor llo slip lad boon oslabIislod. Hovovor, llo judgmonl
doos nol cIarify oxaclIy vlon llo Ironcl armod forcos voro considorod
lo lavo oblainod "fuII and oxcIusivo conlroI" of llo slip, ospociaIIy sinco
llo Iiligalion did nol conlor on llo boarding and ovorlaking of llo slip,
bul rallor on llo arrosl and confinomonl of llo crov lo lloir cabins for a
poriod of 13 days during llo lransil lo Iranco.
In llo caso al land, il is difficuIl lo soo lov IsraoI couId bo
considorod lo lavo lad fuII and oxcIusivo conlroI prior lo laking
conlroI of llo bridgo of llo fIoliIIa vossoIs and llo subsoquonl cossalion
of rosislanco. Iurllor, ovon if IsraoIi forcos voro considorod lo lavo lad
sucl conlroI ovor llo M.ti M.rm.r. prior lo laking conlroI of llo bridgo,
llo aclions of llo IsraoIi forcos vouId sliII bo govornod by llo |cx spcci.|is
of inlornalionaI lumanilarian Iav sinco llo onforcomonl of a bIockado
is nol a Iav onforcomonl mission. Tloroforo, llo ruIing of llo Iuropoan
Courl of Human Riglls in llo Mc!tc!ct caso is of Iimilod assislanco in
rosoIving llo issuo of oxlra-lorriloriaI appIicalion of luman riglls Iav
during llo onforcomonl of llo Gaza bIockado.
187. Will rospocl lo llo onforcomonl of llo bIockado, llo uso of forco is
lo bo inlorprolod undor llo inlornalionaI lumanilarian Iav framovork,
798

vlicl pormils allacks againsl combalanls and civiIians laking a dirocl
parl in losliIilios. InlornalionaI lumanilarian Iav is guidod by llo
principIo of dislinclion, vlicl is an obIigalion lo dislinguisl al aII limos
bolvoon civiIians and combalanls.

A civiIian is any porson vlo is nol
dofinod as a "combalanl."
799
CiviIians onjoy a gonoraI proloclion againsl
llo dangors arising from miIilary oporalions.
800
Honco, vlon allacking a
miIilary objoclivo, llo allacking parly musl lako aII foasibIo procaulions
lo avoid incidonlaI (coIIaloraI) injury and doall lo civiIians.
801
Iurllor,
llo oxpoclod incidonlaI larm causod lo civiIians by an allack musl nol
797 Modvodyov and Ollors v. Iranco, AppIicalion No. 394-03, Iur. Cl. H.R., Gr. Cl., }udgmonl,
para. 63-67 (Mar. 29, 2010).
798 Soo Nuc|c.r Wc.pcns C.sc, supr. nolo 365, al para. 25.
799 Gcnct. Ccntcniicn |||, supr. nolo 48, al arl. 4(A)(1), (2), (3) and (6), A!!iiicn.| Prciccc| |,
supr. nolo 292, al arl. 43, Soo aIso llo 1.rgcic! Ki||ing caso, supr. nolo 37, al para. 24.
801 |!., supr. nolo 292, al arl. 57(2)(a)(ii).
bo oxcossivo in roIalion lo llo concrolo and dirocl miIilary advanlago
anlicipalod (llo "principIo of proporlionaIily").
802
CiviIians slaII nol bo
llo objocl of an allack unIoss, and for sucl limo as lloy lako a dirocl parl
in losliIilios.
803
Rogarding llo uso of forco, inlornalionaI lumanilarian
Iav lroals combalanls and civiIians vlo lako a dirocl parl in losliIilios
difforonlIy llan uninvoIvod civiIians.
Undor inlornalionaI lumanilarian Iav, llo rigll lo Iifo is proloclod
by prolibilions againsl indiscriminalo allacks,
804
largoling individuaI
civiIians and llo civiIian popuIalion unIoss lloy lako a dirocl parl in
losliIilios,
805
causing suporfIuous or unnocossary sufforing lo combalanls,
806

and largoling lloso vlo aro |crs !c ccmo.i.
807

188. As a rosuIl, llo appIicabIo ruIos rogarding llo uso of forco
againsl porsons on board llo fIoliIIa vossoIs aro llus primariIy govornod
by lloir slalus undor inlornalionaI lumanilarian Iav. Tlo saIionl issuo
is vlollor llo passongors voro civiIians laking a dirocl parl in losliIilios
or uninvoIvod civiIians. Tlo dislinclion is significanl for llroo main
roasons. Iirsl, as slalod abovo, civiIians vlo aro nol laking a dirocl parl
in losliIilios cannol bo llo objocl of an allack, vloroas dirocl parlicipanls
can bo allackod for sucl limo lloy aro laking parl in losliIilios.
Socond, undor inlornalionaI lumanilarian Iav, llo fIoliIIa vossoIs bocamo
vaIid miIilary objoclivos onco lloy rosislod capluro. Hovovor, llo
prosonco of civiIians on board llo vossoIs is roIovanl lo llo assossmonl
of llo principIo of proporlionaIily" discussod abovo. Ior inslanco, lad
llo M.ti M.rm.r. boon allackod, IsraoIi forcos vouId lavo lad lo
assoss vlollor llo oxpoclod incidonlaI Ioss of civiIian Iifo or injury lo
civiIians vouId bo oxcossivo in roIalion lo llo concrolo and dirocl miIilary
advanlago anlicipalod by llo allack.
808
Dirocl parlicipanls in losliIilios,
lovovor, vouId nol bo considorod civiIians for llo purposo of assossing
llo proporlionaIily of llo aclion.
802 |!., supr. nolo 292, al arl. 57(2) (iii).
803 |!., supr. nolo 292, al arl 51(3).
804 |!., supr. nolo 292, al arl. 51(4).
805 |!., supr. nolo 292, al arl. 51(3).
806 |!., supr. nolo 292, al arl. 35.
807 |!., supr. nolo 292, al arl. 41, A!!iiicn.| prciccc| | providos llal a porson is lors do combal
if:
(a) lo is in llo povor of an advorso Iarly,
(b) lo cIoarIy oxprossos an inlonlion lo surrondor, or
(c) lo las boon rondorod unconscious or is ollorviso incapacilalod by vounds or sicknoss,
and lloroforo is incapabIo of dofonding limsoIf,
providod llal in any of lloso casos lo abslains from any losliIo acl and doos nol allompl
lo oscapo".
808 |!., supr. nolo 292, al arl. 57(2).
Tlird, lloro aro parlicuIar norms llal appIy vlon forco is diroclod
al civiIians vlo aro nol laking a dirocl parl in losliIilios. GonoraIIy, sucl
forco is govornod by llo principIos of "nocossily" and "proporlionaIily."
Tlo principIo of "nocossily" roquiros llal forco musl bo nocossary in
ordor lo onforco llo Iav or porform somo ollor IavfuI acl. Tlo principIo
of "proporlionaIily" las a difforonl moaning rogarding llo uso of forco
againsl civiIians llan il las, as oxpIainod abovo, vlon appIiod lo llo
largoling of miIilary objoclivos undor inlornalionaI lumanilarian Iav. In
llo 1.rgcic! Ki||ing caso, llo IsraoIi Supromo Courl roIiod on llo foIIoving
oxcorpl from a Iuropoan luman riglls caso lo oxpIain llo losl for assossing
vlon llo uso of IollaI forco by IsraoIi forcos is disproporlionalo:
|Tjlo uso of IollaI forco vouId bo rondorod disproporlionalo
if llo aullorilios faiIod, vlollor doIiboraloIy or llrougl Iack
of propor caro, lo lako slops vlicl vouId lavo avoidod llo
doprivalion of Iifo of llo suspocls villoul pulling llo Iivos of
ollors al risk.
809
189. In a Iav onforcomonl conloxl (vlicl appIios luman riglls norms),
llo uso of IollaI forco by slalo agonls is gonoraIIy pormillod in llroo
circumslancos: soIf-dofonso, dofonso of ollors, and onforcomonl of llo Iav.
Tloro aro basic principIos llal guido llo uso of forco lo onsuro llal il is
nocossary and proporlionalo: (i) appIicalion of non-vioIonl moans boforo
rosorling lo llo uso of forco and firoarms, (ii) uso of forco and firoarms
onIy if ollor moans aro inoffoclivo or villoul promiso of aclioving llo
inlondod rosuIl, (iii) uso of varnings boforo using firoarms unIoss il pIacos
porsonnoI al risk or is inapproprialo or poinlIoss in llo circumslancos,
(iv) inlonlionaI IollaI uso of firoarms onIy vlon slriclIy unavoidabIo lo
prolocl Iifo, (v) providing Iav onforcomonl porsonnoI vill soIf-dofonso
oquipmonl, and (vi) uso of Ioss-IollaI incapacilaling voapons lo roslrain
809 1.rgcic! Ki||ing c.sc, supr. nolo 37, al para. 40 (quoling McC.nn t. Uniic! King!cm,
AppIicalion No. 18984/91, Iur. Com. H.R., Roporl of llo Commission (Sop. 27, 1995), al
para. 235 |loroinaflor 1|c McC.nn casoj (il slouId bo nolod llal llo quolo can bo found
in llo Iuropoan Commission of Human Riglls' Roporl, ovon llougl llo IsraoIi Supromo
Courl indicalos il vas from llo Iuropoan Courl of Human Riglls)). Tlo IsraoIi Supromo
Courl roforrod lo llis slalomonl vliIo assossing llo uso of forco againsl dirocl parlicipanls
in losliIilios in llo 1.rgcic! Ki||ing caso, supr. nolo 37, al para. 40, Hovovor, il slouId
bo nolod llal llis roasoning, vlicl incorporalos luman riglls Iav inlo inlornalionaI
lumanilarian Iav, doos nol rofIocl llo moro vidoIy accoplod inlorprolalion of inlornalionaI
lumanilarian Iav. In any ovonl, in llo caso al land, llo IsraoIi Supromo Courl's roasoning
vouId nol bo appIicabIo vlon assossing llo uso of forco againsl dirocl parlicipanls in
losliIilios givon llal is nol cIoar lo vlal oxlonl llo courl boIiovod llo obIigalion lo capluro
rallor llan kiII a civiIian laking a dirocl parl in losliIilios appIiod lo llo uso of IollaI forco
oulsido llo narrov fioId of largolod kiIIing, or vlollor il vas roslriclod lo llo uniquoIy
ligl IovoIs of conlroI inloronl in boing an occupying povor. Tloso aro cogonl roasons for
roslricling ils appIicalion lo llo spocific socurily sconario prosonlod in llal caso.
llo uso of doadIy forco.
810
Iurllor, llo uso of firoarms is pormillod in soIf-
dofonso or llo dofonso of ollors againsl llo imminonl llroal of doall or
sorious injury, lo provonl a parlicuIarIy sorious crimo invoIving gravo
llroal lo Iifo, lo arrosl a porson prosonling sucl a dangor and rosisling
lloir aullorily, or lo provonl lis or lor oscapo.
811

Any uso of forco againsl civiIians vlo aro nci laking a dirocl
parl in losliIilios, is guidod by llo principIos of "nocossily" and uso
of "proporlionalo forco" associalod vill luman riglls-basod Iav
onforcomonl norms.
To dolormino llo appIicabIo norms govorning llo uso of forco in llo
mallor boforo llo Commission, lloroforo, il is firsl nocossary lo assoss llo
slalus of llo porsons aboard llo fIoliIIa vossoIs pursuanl lo llo principIos
of inlornalionaI lumanilarian Iav. Tlo slalus of llo foIIoving llroo
groups viII bo considorod soparaloIy: (i) llo civiIian passongors, (ii) llo
IHH-conlroIIod aclivisls vlo parlook in llo vioIonco on board llo M.ti
M.rm.r.,
812
and (iii) llo caplain and crov of llo M.ti M.rm.r..
!"# @)+)76 &* )"# =3-3.3+' B+66#'4#56
190. As discussod abovo, llo parlicipanls in llo Gaza fIoliIIa voro
prodominanlIy an inlornalionaI group of aclivisls vloso primary goaI
appoarod lo bo lo bring pubIicily lo llo lumanilarian silualion in Gaza by
broacling llo bIockado imposod by IsraoI. On board llo M.ti M.rm.r.,
a majorily of llo passongors appoar nol lo lavo boon conlroIIod by, or
acling on bolaIf of, llo IHH, vlicl, as viII bo discussod boIov, lad a
significanlIy difforonl goaI in mind. Tlo disparily bolvoon lloso lvo
groups (llo fIoliIIa parlicipanls and llo IHH aclivisls) vas ovidonl boll
duo lo a plysicaI soparalion bolvoon llo lvo groups and by lloir aclions.
Iorlaps llo cIoarosl oxampIo is llo bolavior of llo lvo rospoclivo groups
as soon as llo IsraoIi Navy commoncod ils capluro of llo vossoI. Al llal
poinl, an ordor vas givon ovor llo Ioud spoakor llal llo passongors slouId
rolurn lo lloir soals boIov dock.
813
Ono group, by far llo Iargosl, knov lo
810 Soo Tlo Unilod Nalions, B.sic Princip|cs cn i|c Usc c| Icrcc .n! Iirc.rms o I.u |n|crccmcni
O||ici.|s, Adoplod by llo Iiglll Unilod Nalions Congross on llo Irovonlion of Crimo and
llo Troalmonl of Offondors, Havana, Cuba, 27 Augusl lo 7 Soplombor 1990, .t.i|.o|c .i
vvv2.olclr.org/ongIisl/Iav/firoarms.llm |loroaflor: U.N. B.sic Princip|csj.
811 |!., al prov. 9.
812 As nocossary, lloso calogorizalions viII bo appIiod lo llo ollor vossoIs in llo fIoliIIa in llo
anaIysis of llo uso of forco.
813 Mr. Mulamad Zidan and Sloikl Hamod Abu-Dobs loslifiod boforo llo Commission
llal llo porson vlo gavo llo ordor vas llo Caplain of llo Mavi Marmara, Transcripl
of sossion no. 15 "Toslimony of Mr. Mulamad Zidan" (Ocl. 25, 2010), al 7, Transcripl of
sossion no. 15 "Toslimony of Sloikl Hamod Abu-Dobs " (Ocl. 25, 2010), al 5.
go boIov docks and did nol parlicipalo in llo vioIonl opposing of llo
boarding. Tlo ollor group, organizod and conlroIIod by llo IHH, slayod
on llo uppor docks and proparod lo confronl llo IsraoIi forcos. Iurllor,
from llo loslimonios of llo llroo soIdiors vlo voro lakon boIov dock by
llo IHH aclivisls, il is ovidonl llal lloro vas a cIoar dislinclion bolvoon
llo lvo groups. As opposod lo llo vioIonl IHH aclivisls vlo brougll
llo soIdiors boIov dock, vloro lloy boal llom and provonlod llom from
rocoiving adoqualo modicaI caro, somo of llo fIoliIIa parlicipanls lloy
oncounlorod boIov dock proloclod llom from abuso by llo IHH-diroclod
caplors. AII of llo soIdiors vlo voro lakon boIov dock slalod llal villoul
llo inlorvonlion of somo of llo fIoliIIa parlicipanls, lloir silualion vouId
lavo boon mucl vorso.
814
191. Tloroforo, llo Commission concIudos llal llo uso of forco
againsl civiIians vlo did nol lako a dirocl parl in llo vioIonco on board
llo M.ti M.rm.r. is govornod by llo principIos of nocossily and llo
uso of "proporlionalo forco" associalod vill luman riglls-basod Iav
onforcomonl norms. Wo viII discuss llo impIicalions of llis concIusion
boIov.
@)+)76 &* )"# :;; <%)3-36)6
192. On board llo M.ti M.rm.r., a dislincl group of aclivisls soomod lo
lavo a difforonl agonda llan llo ollor parlicipanls in llo Gaza fIoliIIa. Tlo
dominanl mombors of llis group consislod of a "lard coro" of 40 aclivisls
in llo Turkisl organizalion IHH. Il aIso incIudod ollor parlicipanls,
IargoIy of Turkisl nalionaIily, llal docidod, for ono roason or anollor, lo
parlicipalo in llo vioIonco on board llo M.ti M.rm.r.. In llis rospocl, lloy
oporalod in concorl vill llo lard coro of IHH aclivisls. Il is llo group of
aclivisls llal rosislod llo IDI's allompls lo capluro llo M.ti M.rm.r. (as
monlionod abovo, llo IHH affiIialod porsons llal parlook in llo vioIonco
aro roforrod lo in llo roporl as "IHH aclivisls").
815
Tlo aclions of lloso
aclivisls aflor llo IDI bogan lo allompl laking ovor llo M.ti M.rm.r.
(and for somo, ovon boforo llis) slov llal lloir slalus undor inlornalionaI
lumanilarian Iav vas dislincl from llo ollor passongors on llo slip.
193. CiviIians rolain llo proloclion llal lloir slalus granls llom undor
inlornalionaI lumanilarian Iav, as Iong as lloy do nol lako a dirocl parl in
losliIilios. Wlon lloy do lako sucl parl in losliIilios, lloy can bo largolod
814 Toslimony of llo commandor of Slayolol 13, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451,
al 4.
815 Ior moro dolaiIs, soo supr. paras. 126-140 in llis roporl.
in llo samo mannor as if lloy voro combalanls. Tlis principIo is rofIoclod
in arlicIo 51(3) lo llo Iirsl AddilionaI IrolocoI, vlicl slalos:
"CiviIians slaII onjoy llo proloclion affordod by llis Soclion,
unIoss and for sucl limo as lloy lako a dirocl parl in losliIilios".
816
Tlo lorm lako a dirocl parl in losliIilios las boon llo subjocl
of considorabIo anaIysis and discussion. Tlo ICRC Commonlarios lo
AddilionaI IrolocoI I dofino dirocl parlicipalion as foIIovs:
"acls of var vlicl by lloir naluro or purposo aro IikoIy lo causo
acluaI larm lo llo porsonnoI and oquipmonl of llo onomy armod
forcos. Il is onIy during sucl parlicipalion llal a civiIian Iosos
lis immunily and bocomos a Iogilimalo largol. Onco lo coasos lo
parlicipalo, llo civiIian rogains lis rigll lo llo proloclion undor
llis Soclion, i.o., againsl llo offocls of losliIilios, and lo may no
Iongor bo allackod".
817
194. Moro roconlIy, in a documonl onlilIod |nicrprciitc Gui!.ncc cn i|c
Nciicn c| Dircci P.riicip.iicn in Hcsii|iiics, llo ICRC las suggoslod llroo
conslilulivo oIomonls llal aro cumuIalivoIy roquirod for an acl lo quaIify as
dirocl parlicipalion: (i) a llrosloId of larm, (ii) a causaI Iink bolvoon llal
acl and llo larm IikoIy lo rosuIl, and (iii) llal llo acl bo in supporl of ono
parly lo llo confIicl and lo llo dolrimonl of anollor.
818
Hovovor, il slouId
bo nolod llal llis documonl las gonoralod considorabIo conlrovorsy, and
llo parlicipanls voro nol abIo lo roacl a broad consonsus rogarding llo
dofinilion of dirocl parlicipalion in losliIilios. Tloroforo, llo |nicrprciitc
Gui!.ncc cn i|c Nciicn c| Dircci P.riicip.iicn in Hcsii|iiics viII bo usod
cauliousIy in llis roporl.
819
816 A!!iiicn.| Prciccc| |, supr. nolo 292 al arl. 51(3).
817 Soo |CRC Ccmmcni.r A!!iiicn.| Prciccc| |, supr. nolo 285, al arl. 51(3), para. 1944.
818 Soo ICRC, |nicrprciitc Gui!.ncc cn i|c Nciicn c| Dircci P.riicip.iicn in Hcsii|iiics Un!cr
|nicrn.iicn.| Hum.nii.ri.n I.u 46 (NiIs MoIzor od., 2009), .t.i|.o|c .i vvv.icrc.org/ong/
assols/fiIos/ollor/icrc_002_0990.pdf |loroinaflor ICRC |nicrprciitc Gui!.nccj:
"In ordor lo quaIify as dirocl parlicipalion in losliIilios, a spocific acl musl mool llo
foIIoving cumuIalivo criloria:
1. llo acl musl bo IikoIy lo advorsoIy affocl llo miIilary oporalions or miIilary capacily
of a parly lo an armod confIicl or, aIlornalivoIy, lo infIicl doall, injury, or doslruclion on
porsons or objocls proloclod againsl dirocl allack (llrosloId of larm), and
2. lloro musl bo a dirocl causaI Iink bolvoon llo acl and llo larm IikoIy lo rosuIl oillor
from llal acl, or from a coordinalod miIilary oporalion of vlicl llal acl conslilulos an
inlograI parl (dirocl causalion), and
3. llo acl musl bo spocificaIIy dosignod lo diroclIy causo llo roquirod llrosloId of larm
in supporl of a parly lo llo confIicl and lo llo dolrimonl of anollor (boIIigoronl noxus)".
819 In 2003, llo ICRC and llo Assor Inslilulo commoncod a projocl lo provido inlorprolivo
guidanco on llo concopl of dirocl parlicipalion in losliIilios (i.o. ICRC |nicrprciitc
Gui!.ncc, supr. nolo 818) Various criliquos of llo |nicrprciitc Gui!.ncc can bo found al
llo =D< Z@ 5-$?# 6 T X forum, .t.i|.o|c .i vvv.nyujiIp.com/2010/06/05/nov-issuo-
forum-on-dirocl-parlicipalion-in-losliIilios, Iurllor, 1|c Air .n! Missi|c W.r|.rc M.nu.|,
195. Tlo Supromo Courl las ruIod on llo issuo of dirocl parlicipalion
in losliIilios in 2005 in llo 1.rgcic! Ki||ings caso. In llis roporl, llo
Commission las closon lo roIy primariIy on llis ruIing vlon assossing
dirocl parlicipalion in losliIilios. Tlo courl providod llal, aIllougl IsraoI
lad nol onaclod AddilionaI IrolocoI I, ils provisions roIaling lo dirocl
parlicipalion nonolloIoss aro appIicabIo lo IsraoI as parl of cuslomary
inlornalionaI Iav.
820
Tlo judgmonl concIudos llal arlicIo 51(3) of AddilionaI
IrolocoI I oncompassos llroo main parls: |irsi, llo concopl of "losliIilios",
scccn!, llo roquiromonl llal civiIians lako a "dirocl" parl in losliIilios, and
i|ir!, llo provision by vlicl civiIians aro nol proloclod from allack "for
sucl limo" as lloy lako dirocl parl in losliIilios.
821
In roIying on llo ICRC
Commonlarios lo llo AddilionaI IrolocoIs, llo courl slalod:
According lo llo accoplod dofinilion, a civiIian is laking parl in
losliIilios vlon using voapons in an armod confIicl, vliIo galloring
inloIIigonco, or vliIo proparing limsoIf for llo losliIilios. Rogarding
laking parl in losliIilios, lloro is no condilion llal llo civiIian uso lis
voapon, nor is lloro a condilion llal lo boar arms (oponIy or concoaIod).
Il is possibIo lo lako parl in losliIilios villoul using voapons al aII.
822
Tlo courl furllor nolod llal sinco lloro is no consonsus on vlal
"dirocl" parlicipalion onlaiIs, llal slandard musl bo assossod on a "caso by
caso" basis. Hovovor, il concIudod llal a civiIian vlo gonoraIIy supporls
llo losliIilios is nol laking a dirocl parl, vliIo a civiIian boaring arms
(oponIy or concoaIod) vlo is on lis vay lo llo pIaco vloro lo viII
uso llom againsl llo army, al sucl pIaco, or on lis vay back from il,
is a civiIian laking "an aclivo parl" in llo losliIilios..
823
Rogarding llo
inlorvaI bolvoon lloso lvo oxampIos of indirocl and dirocl parlicipalion,
llo courl omplasizod llal llo docisivo faclor is vlollor llo individuaI is
porforming llo funclions of a combalanl.
824
IinaIIy, vill rogards lo "for
sucl limo", llo courl vas of llo viov llal lloro vas a Iack of cIarily as lo
supr. nolo 115, al 121, para. 5, nolos llal llo criloria oslabIislod in llo DIH Sludy voro
nol unanimousIy accoplod by llo parlicipanls in llal Sludy. Tlo Iack of inlornalionaI
consonsus on llis documonl is rofIoclod in llo May 2010 Human Riglls CounciI Rcpcri O|
1|c Spcci.| R.ppcricur On |xir.ju!ici.|, Summ.r Or Aroiir.r |xccuiicns, Siu! On 1.rgcic!
Ki||ings, A/HRC/14/24/Add.6, al 20, para. 62, vlicl slalos: In 2009, llo ICRC issuod ils
Inlorprolivo Guidanco on DIH, u|ic| prcti!cs . usc|u| si.riing pcini |cr !iscussicn |omplasis
addodj.
820 Soo 1.rgcic! Ki||ing caso, supr. nolo 37, al para. 30.
821 |!., al para. 32.
822 |!., al para. 33.
823 |!., al para. 34.
824 |!. al para. 35, Soo aIso Konnoll Walkin, Ccnirc||ing i|c Usc c| Icrcc. A Rc|c |cr Hum.n
Rig|is Ncrms in Ccnicmpcr.r Armc! Ccn||ici, 98 2.@ Z@ 5-$?#@ 17 (2004).
llo scopo of llo provision "for sucl limo" in inlornalionaI Iav,
825
aIllougl
il providod llal if "sucl limo" las passod, llo proloclion granlod lo a
civiIian rolurns.
826

In dolormining vlollor any of llo porsons on board llo M.ti
M.rm.r. slouId bo considorod dirocl parlicipanls in losliIilios, llo
Commission is llus mindfuI llal llo oxisling criloria Iack a dogroo of
procision and aro conlrovorsiaI. As llo IsraoIi Supromo Courl las slalod,
in llo caso of doubl, llo slalus of an individuaI slouId bo llal of a civiIian.
827

196. As proviousIy slalod, from llo maloriaIs boforo llo Commission,
incIuding oraI loslimonios, documonlary and magnolic modia, il appoars
llal llo vioIonco llal llo IsraoIi forcos oncounlorod vlon sooking lo
capluro llo M.ti M.rm.r. vas organizod and pIannod. Tlis is ovidonl by
llo aclions of llo IHH aclivisls as dolaiIod abovo, incIuding llo foIIoving
facls: a coro group of somo 40 IHH aclivisls boardod llo M.ti M.rm.r.
in IslanbuI villoul going llrougl a socurily clock, somo of llo mombors
of llis group idonlifiod llomsoIvos during llo journoy vill spocific signs
on lloir cIolling, sucl as "Socurily Guard", a Iargo numbor of buIIol
proof coramic vosls, gas masks, loIoscopic siglls, and nigll-vision aids
voro found on board llo M.ti M.rm.r.,
828
llo IHH aclivisls oslabIislod
a communicalions slrucluro llrougl llo uso of landloId radios (vlicl
voro aIso givon lo llo crov bul vill a difforonl froquoncy),
829
a fov lours
boforo llo boarding and aflor llo caplain on llo M.ti M.rm.r. lad boon
varnod by llo IDI, an ordor vonl oul lo aII passongors lo rolurn lo lloir
soals boIov dock - somo passongors, lovovor, romainod on llo uppor
docks, and somo of lloso passongors usod disk savs lo cul llo slip's
molaI raiIings and proparo iron bars, IHH aclivisls voro dividod inlo
groups and slalionod for duly al spocific posls around llo slip.
830
Ollor
passongors, vlo voro primariIy of Turkisl nalionaIily, joinod llis coro
group in rosisling llo IsraoIi allompls lo board llo slip. Il is ovidonl llal
llo IHH organizod and pIannod for a vioIonl confronlalion vill llo IsraoIi
miIilary forcos.
Irom llo IDI's in|r. rc! (a visuaI rocording dovico) il sooms llal
vlon llo lakoovor slarlod, somo approximaloIy 100 IHH aclivisls voro
825 1.rgcic! Ki||ing affair, supr. nolo 37, al para. 40.
826 |!., al para. 38.
827 |!., al para. 40.
828 Toslimony of commandor of llo Takoovor Iorco, |nuir |xp.nsicn c| 20.9.2010, supr. nolo
451, al 4.
830 Soo llo vidoo fiIo "VIDIO_100530_003.asf", in foIdor Sc., N.t D.i. Disc, supr. nolo 5, Soo
aIso llo vidoo fiIo "VTS_01_2.mov", in foIdor Air, |!.
Iocalod on llo uppor docks of llo slip. Tlo coordinalod mannor in vlicl
llo IHH aclivisls mol llo IsraoIi soIdiors individuaIIy fasl-roping lo llo
dock (for somo of llom, ovon boforo lloy roaclod llo dock), indicalos a
cIoar inlonl lo vioIonlIy opposo a capluro of llo slip. IDI soIdiors on llo
Morona spoodboals voro allackod vill iron bars, clairs, boIls, and ollor
objocls as lloy approaclod llo M.ti M.rm.r.. Iurllor, llroo soIdiors
voro llrovn off llo roof lo a Iovor dock vloro lloy voro slrippod of
lloir oquipmonl, suslainod sovoro injurios and voro draggod lo a Iocalion
boIov dock. SovoraI ollor soIdiors loslifiod llal allompls voro mado lo
llrov llom ovor lo llo Iovor docks as voII.
831
Tlis concorlod offorl on
llo roof lo llrov soIdiors lo ollor IHH aclivisls llal voro vailing on llo
dock boIov, lakon logollor vill llo facl llal aII llroo caplurod soIdiors
voro lakon lo llo samo Iocalion boIov docks, poinls lo llo oxislonco of
a pIan lo capluro IsraoIi soIdiors and possibIy loId llom as loslagos (as
lapponod in a difforonl ovonl llal llo IHH vas invoIvod in aboul six
monlls prior lo llis ovonl, vlon sovon Igyplian soIdiors voro kidnappod
by llo organizalion's aclivisls).
197. Tlo IovoI of vioIonco on board llo M.ti M.rm.r. cannol bo
calogorizod as civiI disobodionco. Tloro vas nolling passivo rogarding
llo rosislanco carriod oul by llo IHH aclivisls.
832
Noillor voro lloy parl
of a criminaI gang or a group of riolors.
833
Tlo vioIonco vas spocificaIIy
diroclod al llo IDI soIdiors and vas cIoarIy inlondod lo larm llom. Tlo
mannor in vlicl a numbor of llo IHH aclivisls prossod lomo lloir allacks
ovon aflor llo IsraoIi forcos slarlod lo uso IollaI forco in soIf-dofonso
rofIocls a slrong commilmonl lo ongago in confIicl. Somo of lloso aclivisls
aIso oxprossod lloir visl lo bo S|.|cc!s."
834
Solling asido llo quoslion
of vlollor somo of lloir procIamalions may lavo boon domonslralivo
in naluro, il vas ovidonl from llo loslimony of a numbor of soIdiors llal
llo IHH aclivisls lloy oncounlorod voro using vioIonco vill llo spocific
inlonl lo provonl llo IsraoIi forcos from boarding llo M.ti M.rm.r.. Tlo
IsraoIi forcos voro oxpocling a Iov IovoI of rosislanco from llo passongors
on board llo fIoliIIa vossoIs, bul vlal lloy oxporioncod on llo M.ti
831 Toslimony of soIdior no. 11, |DI Ccmp|ciicn Rcspcnsc c| .11.2010, supr. nolo 486, Toslimony
of soIdior no. 22, |!. and Toslimony of soIdior no. 24, |!.
832 Iassivo rosislanco is dofinod in llo Oxford OnIino Diclionary as non-vioIonl opposilion
lo aullorily, ospociaIIy a rofusaI lo cooporalo vill IogaI roquiromonls, .t.i|.o|c .i
oxforddiclionarios.com/viov/onlry/m_on_gb0608850#m_on_gb0608850.
833 Soo ICRC |nicrprciitc Gui!.ncc, supr. nolo 818, al 24 (vlicl suggosls |IjaslIy, il slouId
bo poinlod oul llal organizod armod vioIonco faiIing lo quaIify as an inlornalionaI or
non-inlornalionaI armod confIicl romains an issuo of Iav onforcomonl, vlollor llo
porpolralors aro viovod as riolors, lorrorisls, piralos, gangslors, loslago-lakors or ollor
organizod criminaIs).
834 Soo llo doclor's loslimony, Inquiry Ixansion of 20.9.2010, supra nolo 451, al 2.
M.rm.r., voro IovoIs of vioIonco llal lloy associalod vill "combal." Tlo
voapons usod by llo IHH aclivisls offorod IollaI forco and rosuIlod in
significanl injurios lo IsraoIi soIdiors. Il sooms llal if il voro nol for llo
proloclivo oquipmonl vorn by IsraoIi miIilary porsonnoI and lloir uso of
boll non-IollaI and IollaI forco in soIf-dofonso, llo injurios suslainod by
boll soIdiors and IHH aclivisls vouId lavo boon ovon vorso and moro
vidosproad.
198. Il slouId aIso bo nolod llal broacling llo bIockado couId lavo
advorsoIy affoclod llo IDI's miIilary oporalions in llal oslabIisling llal
llo bIockado vas nol offoclivo, llus joopardizing llo socurily and poIilicaI
goaIs for vlicl llo bIockado vas oslabIislod. ConsoquonlIy, broacling
llo bIockado, in and of ilsoIf, conslilulos a polonliaI larm lo IsraoI's
miIilary offorl. Iurllor, llo IHH aclivisls allomplod lo carry oul lloir pIan
by using forco againsl llo soIdiors of ono of llo parlios lo llo confIicl. Tlo
IHH aclivisls aclod diroclIy lo causo, or allompl lo causo, llis larm lo ono
sido lo llo armod confIicl, i.o. IsraoI. Hovovor, il slouId bo nolod llal llo
ollor fIoliIIa parlicipanls, vlo did nol aclivoIy parlicipalo in llo vioIonco
on board llo M.ti M.rm.r., aro nol considorod lo lavo lakon a dirocl parl
in losliIilios basod on lloir parlicipalion in llo allomplod broacl of llo
bIockado aIono.
In addilion, llo maloriaIs boforo llo Commission slov llal lloro
vas aIso a noxus bolvoon llo aclions of llo IHH aclivisls and llo confIicl.
WliIo llo fIoliIIa vas soIf-doscribod as a "lumanilarian mission," llal lilIo
maskod an, in parl, difforonl objoclivo. Tlis is ovidonl from llo facl llal
llo fIoliIIa organizors did nol allompl lo roacl an agroomonl vill IsraoI
rogarding llo doIivory of lumanilarian suppIios. Tloso conlroIIing llo
fIoliIIa spocificaIIy rofusod llo IsraoIi offor lo divorl llo vossoIs lo Asldod
and lavo lloir suppIios forvardod ovor Iand lo Gaza. On llo ollor
land, lovovor, llo arrivaI of llo fIoliIIa vas pIannod and coordinalod in
advanco vill llo Hamas. As slalod abovo, from llo ovidonco boforo llo
Commission, il appoars llal llo IHH aidod llo Minislry of Transporlalion
and llo Minislry of IubIic Works of llo Hamas govornmonl in proparing
llo fisling porl in llo Gaza Slrip lo rocoivo llo fIoliIIa vossoIs.
835
Iurllor,
vliIo roforrod lo as a lumanilarian mission, llo fIoliIIa vas carrying
comonl, a commodily llal IsraoI las idonlifiod as boing usod by llo
Hamas for miIilary purposos and llal llo lransfor of vlicl lo llo Gaza
Slrip vas roslriclod by IsraoI.
199. In sum, llo IHH aclivisls' rosislanco lo llo boarding of llo M.ti
M.rm.r. vas pIannod and oxlromoIy vioIonl. Iurllor, il vas diroclIy
835 IICC roporl (Apr. 7, 2010), supr. nolo 83.
connoclod lo llo ongoing inlornalionaI armod confIicl bolvoon IsraoI
and llo Hamas. Tlo obslruclion of llo IsraoIi allompls lo onforco llo
bIockado and llo IovoIs of vioIonco offorod by llo IHH aclivisls voro
nol roprosonlalivo of acls associalod vill civiI disobodionco or isoIalod
or sporadic acls of vioIonco. Undor llo circumslancos, lloso acls can
roasonabIy bo viovod as allompls lo priviIogo llo Hamas (acling lo llo
dolrimonl of IsraoI in ils armod confIicl vill llo Hamas) by oslabIisling
llal llo bIockado vas nol offoclivo.
200. Il slouId bo nolod llal suggoslions llal llo IHH aclivisls voro
acling in Iogilimalo soIf-dofonso aro nol supporlod by llo ovidonco. Iirsl,
llo bIockado vas oslabIislod in accordanco vill llo ruIos govorning
bIockados and lloro vas no rigll of soIf-dofonso lo bo oxorcisod by llo
IHH aclivisls simpIy bocauso llo IsraoIi miIilary vas allompling lo
onforco llo bIockado. Socond, in sooking lo capluro and board llo slip,
llo IsraoIi forcos lad lo rospond lo llo vioIonco offorod firsl by llo IHH.
Tlis is ovidonl from llo magnolic modia llal slovs llo oxlromo IovoIs of
vioIonco usod againsl llo IDI's soIdiors. Sucl allacks aIso occurrod boforo
llo soIdiors couId roacl llo roof of llo M.ti M.rm.r., as lloy fasl-ropod
dovn lo llo slip, vlon lloy voro mosl vuInorabIo bocauso lloy lad nol
yol lad an opporlunily lo dofond llomsoIvos or drav lloir voapons.
201. Basod on llo criloria oslabIislod in llo 1.rgcic! Ki||ings caso, llo
Commission concIudos llal llo IHH aclivisls vlo parlicipalod in vioIonco
on llo M.ti M.rm.r. voro dirocl parlicipanls in losliIilios. In addilion,
il slouId bo nolod llal llo Commission vouId lavo roaclod llo samo
concIusion by appIying llo slandards sol oul in llo ICRC DPH |nicrprciitc
Gui!.ncc cn i|c Nciicn c| Dircci P.riicip.iicn in Hcsii|iiics.
Ior llo purposos of llis roporl, llo Commission las assossod
llal parlicipalion in losliIilios occurrod al Ioasl from llo limo llal llo
passongors voro diroclod lo lako lloir posilions as llo IsraoIi navaI
vossoIs arrivod, unliI llo slip vas lakon undor IsraoIi conlroI. WliIo il is
aIso ovidonl llal a numbor of IHH aclivisls look parl in losliIilios from
a pIanning and IogislicaI porspoclivo voII boforo llo arrivaI of llo IsraoIi
armod forcos, for llo purposos of llis anaIysis, il is onIy nocossary lo find
llal lloy voro diroclIy parlicipaling from llo limo llo IDI's lakoovor of
llo slip bogan.
Tlo finding llal llo IHH aclivisls voro laking a dirocl parl in
losliIilios is imporlanl, bocauso il pIacos lloir aclions in llo propor IogaI
conloxl. Hovovor, duo lo llo IsraoIi govornmonl's Iack of informalion
vill rogards lo llo IHH organizalion and llo inlonlions of llo fIoliIIa
organizors, llo IDI vas nol avaro of llal group's pIan unliI llo firsl
SoIidor fasl-ropod dovn lovards llo roof. During llo pIanning of llo
IsraoIi miIilary oporalion, llo possibiIily llal llo passongors aboard llo
vossoIs migll bo dirocl parlicipanls in losliIilios vas nol oxpoclod and
vas nol lakon inlo accounl. Tlo RuIos of Ingagomonl (ROI), vlicl
oulIinod llo aullorizod IovoIs of forco lo bo usod by llo IsraoIi soIdiors,
rofIoclod llal approacl. Tlis viII bo discussod in dolaiI boIov.
@)+)76 &* )"# =+()+3' +'1 =5#9
202. IinaIIy, llo slalus of llo caplain and crov viII bo oxaminod.
Morclanl crovs lavo onjoyod a somovlal uniquo slalus undor
inlornalionaI lumanilarian Iav. Hovovor, doponding upon lloir aclions,
llo caplain and crov of a noulraI morclanl vossoI can bo considorod lo
lavo lakon a dirocl parl in losliIilios.
203. Tlo caplain of llo M.ti M.rm.r. lad a spociaI rosponsibiIily lo
avoid an allomplod broacl of llo bIockado. Tlis rosponsibiIily is rofIoclod
in llo conslanl roforonco lo llo "Maslor" of summonod morclanl vossoIs
in foundalionaI loxls on llo Iav of navaI varfaro.
836
Tlo Maslor of a
noulraI vossoI las a rosponsibiIily for llo slip and aII porsons aboard,
vlicl incIudos compIying vill aII boIIigoronl ordors, ordoring llal llo
slips crov compIy vill lloso ordors, and doing ovorylling foasibIo lo
onsuro llal noillor llo crov nor llo passongors inlorforo vill or lampor
llo oxorciso of boIIigoronl riglls.
In llis inslanco, llo caplains aclions domonslralod a cIoar inlonl lo
broacl llo bIockado, oillor undor lis ovn voIilion or undor llo diroclion
of llo IHH.
837
Iurllor, llo caplains conlroI of and posilion on llo bridgo
during llo boarding, and llo cIoar rofusaI lo slop llo vossoI dospilo
ropoalod varnings, domonslralo llal lo vas nol a passivo parlicipanl in
llo ovonls on May 31, 2010. In lis inlorrogalion in IsraoI, llo caplain of llo
M.ti M.rm.r. slalod llal lo clangod llo courso of llo slip vlon diroclod
by IsraoIi forcos.
838
Hovovor, from llo ovidonco boforo llo Commission,
incIuding foolago from llo IDI's in|r. rc! and llo anaIysis of llo courso
basod on llal foolago, il is ovidonl llal llo caplain did nol clango llo
836 Soo :*#*.4*1F 0/, 5-$,&-%$"*-%# 6%H *; $/, A,%, supr. nolo 94, al 765 ol soq. paras.
879-883, Soo aIso I88,-/,"., Supr. nolo 86, al 851 ol soq.
837 Il las boon suggoslod llal llo caplain aclod lo slop IHH porsonnoI from proparing
voapons by culling llo raiIings of llo M.ti M.rm.r., Sucl slops, assuming lloy did
lako pIaco, voro obviousIy inoffoclivo sinco lloy did nol slop llo IHH porsonnoI from
amassing lloso voapons and making proparalions for llo assauIl on llo IsraoIi porsonnoI.
Tlo caplain llus romainod rosponsibIo for vlal occurrod on llo vossoI.
838 soo arlicIo: 03/06/10/825/5092 Mi|ii.r |nic||igcncc Rcpcris, supr. nolo 491.
courso of llo slip during llo onliro ovonl.
839
Tlo soIdiors vlo look ovor
llo bridgo slalod llal llo caplain vas llo ono loIding llo slooring vlooI.
840

Iurllormoro, il aIso appoars llal aflor llo IDI soIdiors lad lakon ovor llo
M.ti M.rm.r., llo caplain gavo an ordor lo lis crov lo vrock llo ongino
of llo slip.
841
Tlo IsraoIi armod forcos lad lo bring loclnicaI porsonnoI
from sloro lo fix llo ongino lo gol llo M.ti M.rm.r. undorvay.
842

Tlo caplain's acls poinl lo an inlogralod roIo in llo IHH offorls lo
opposo llo IsraoIi boarding of llo vossoI. As a rosuIl, llo Commission
finds llal llo caplain of llo M.ti M.rm.r. vas an aclivo parlicipanl in llo
allompls lo obslrucl llo IsraoIi boarding oporalions and, lloroforo, lo vas
a dirocl parlicipanl in losliIilios. Rogarding llo crov, llo Commission
doos nol lavo sufficionl ovidonco lo oslabIisl vlollor lloy voro aclivo
parlicipanls, and lloy viII llus bo considorod lo lavo lad a slalus as
civiIians vlo did nol lako parl in llo losliIilios.
The RuIes nI Engagement and the Use nI Fnrce
204. Having roviovod llo slalus of llo fIoliIIa parlicipanls, llo anaIysis
viII nov lurn lo llo diroclion givon lo llo IDI combal porsonnoI rogarding
llo uso of forco. Tloso diroclions aro caIIod RuIos of Ingagomonl (loroaflor:
llo ROE).
843
Tlo ROI is a documonl llal in praclicaI lorms communicalos
lo llo soIdiors llo appIicabIo IogaI framovork for llo uso of forco during
an oporalion. As rofIoclod in llo Iuropoan Courl of Human Riglls caso
McC.nn t. 1|c Uniic! King!cm, a dolorminalion of llo IogaIily of llo uso of
forco during an oporalion roquiros an assossmonl of vlollor llo RuIos of
Ingagomonl (ROI) voro consislonl vill llo Iav.
844
A koy issuo, lloroforo,
is vlollor llo ROI issuod lo llo soIdiors boforo llo Winds of Hoavon 7'
oporalion proporIy rofIoclod llo Iav llal govorns llo uso of forco.
845

839 Toslimony of llo aoriaI Iook-oul, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451.
840 Il slouId bo nolod llal according lo llo soIdiors' loslimonios, llo Caplain did nol rosisl
vlon llo IsraoIi forco look ovor llo bridgo, soo llo loslimony of soIdior no. 18, commandor
of llo forco laking ovor llo bridgo, |!., al 2.
841 Toslimony of soIdior no. 9, |!., al 2, loslifiod llal vlon laking ovor llo bridgo, llo soIdiors
loId llo Caplain lo laIl llo slip, lo slarlod lo spoak in Turkisl lo lis crov. SoIdior no. 9
slalod llal lo Ialor found oul llal vlal llo Caplain said lo lis crov vas an ordor lo vrock
llo ongino of llo slip.
842 |!.
843 Il slouId bo nolod llal llo plraso "ruIos of conducl for llo forcos" migll bo moro
approprialo undor llo circumslancos. Hovovor, duo lo llo facl llal in our caso il is mainIy
llo provisions concorning llo uso of forco llal aro roIovanl, ospociaIIy llo uso voapons,
llis roporl usos llo narrovor bul moro famiIiar oxprossion "ruIos of ongagomonl."
844 McC.nn .n! ci|crs t. Uniic! King!cm, App. No. 18984/91, Iur. Cl. H.R., }udgmonl (1995),
al 156 |loroaflor: llo McC.nn casoj.
845 Soo 1|c RO| H.n!occ|, supr. nolo 786, Iarl Ono: Inlroduclion, 1 al para. 3 (ROI aro
205. During a Iav onforcomonl oporalion, llo ROI vouId normaIIy
rofIocl llo aullorily lo uso forco in soIf-dofonso, dofonso of ollors, and for
mission accompIislmonl. If llo mission is conduclod during an armod
confIicl, vloro llo IogaI aullorily lo uso forco is broador, llo ROI couId
rofIocl ruIos diroclIy basod on inlornalionaI lumanilarian Iav. Hovovor,
ovon during armod confIicl, llo aullorily lo uso forco may sliII bo moro
narrovIy proscribod in llo ROI llan vlal llo Iav pormils, oillor bocauso
of oporalionaI considoralions or duo lo a nood lo mool parlicuIar poIicy
goaIs. Tloroforo, llo subslanco of any ROI is dopondonl upon boll
llo naluro of llo mission and llo anlicipalod IovoIs of forco roquirod lo
compIolo llal mission.
206. Tlo ROI issuod for llo 'Winds of Hoavon 7' oporalion on May
31, 2010, voro onlilIod "llo RuIos of Conducl." Tloy voro sol oul in
Annox G (llo IogaI annox) lo llo navaI command issuod by llo IsraoIi
Navy oporalion doparlmonl (llis vas aIso annoxod lo llo Iand oporalion
command). Undor llo provision namod "GonoraI" in llo RuIos of
Conducl, il vas providod llal vlon doaIing vill civiIian foroignors vlo
aro nol, "according lo oxisling informalion", combalanls, forco slouId
nol bo oxorcisod lovards lloso civiIians boyond llo minimum amounl
nocossary for compIolion of llo mission, i.o., lo laIl llo vossoIs.
846
Tlo
uso of forco vas pormillod onIy as a Iasl rosorl and onIy if porsuasion
vas unsuccossfuI. Iurllor, llo aullorily lo uso forco vas Iimilod lo lvo
dislincl circumslancos: lo provonl llo risk of larm lo a porson, and lo doaI
vill an allompl lo llvarl llo bringing of a vossoI lo an IsraoIi porl.
847
If
forco lad lo bo usod, il lad lo bo oxorcisod graduaIIy and in proporlion
lo llo rosislanco mol, and onIy aflor oxamining aIlornalivos lo provonl
dolorioralion of llo silualion.
Usc c| |css-|ci|.| uc.pcns. Tlo uso of Ioss-IollaI voapons vas
pormillod onIy vlon nocossary lo noulraIizo an immodialo llroal lo llo
safoly or Iifo of porsons from a spocific porson. Iurllor, if llo porson
posing llo llroal couId bo noulraIizod villoul using a Ioss-IollaI voapon,
issuod by compolonl aullorilios and assisl in llo doIinoalion of llo circumslancos and
Iimilalions villin vlicl miIilary forcos may bo ompIoyod lo acliovo lloir objoclivos.
ROI appoar in a varioly of forms in nalionaI miIilary doclrinos, incIuding oxoculo ordors,
dopIoymonl ordors, oporalionaI pIans, or slanding diroclivos. Wlalovor lloir form, lloy
provido aullorisalion for and/or Iimils on, among ollor llings, llo uso of forco, llo
posilioning and posluring of forcos, and llo ompIoymonl of corlain spocific capabiIilios.
In somo nalions, ROI lavo llo slalus of guidanco lo miIilary forcos, in ollor nalions, ROI
aro IavfuI commands).
846 N.t.| Opcr.iicn.| Or!cr 3, supr. nolo 445, annox G, al 59-61.
847 |!.
llo soIdiors voro inslruclod lo do so.
848
Tlo ROI aIso spocifiod llal in
caso forco vas roquirod, onIy Ioss-IollaI voapons spocificaIIy approvod
for llo mission vouId bo usod. In llis conloxl, il slouId bo nolod llal llo
ROI rofor lo llo oporalion and safoly inslruclion found in Annox D lo llo
navaI command, vlicl furllor roslriclod llo uso of Ioss-IollaI voapons
lo corlain rangos and Iimilod vlicl parls of llo body couId bo largolod.
Ior oxampIo, slooling al llo load or back vas prolibilod duo lo llo risk
of IollaI larm.
Usc c| |ci|.| uc.pcns. Tlo ROI providod llal gonoraIIy, llo uso of Iivo
firo is nol pormillod. Tlo onIy caso in vlicl IollaI voapons vas pormillod
vas in soIf dofonso - lo romovo a roaI and imminonl dangor lo Iifo, vlon
llo dangor cannol bo romovod by Ioss larmfuI moans.
849
Irior lo using
IollaI voapons, llo soIdiors lad lo issuo vorbaI varnings or allompl lo
subduo llo porson posing llo dangor by Ioss larmfuI moans. If llal vas
nol possibIo, llo noxl slops voro lo llroalon llo uso of voapons, slool
varning slols in llo air, and firo lovards llo Iogs (al llo knoos or Iovor).
Hovovor, llo soIdiors couId uso IollaI forco villoul foIIoving lloso
slops if nocossary lo romovo an immodialo llroal. Tlo ROI aIso slalod
llal modicaI assislanco las lo bo providod lo any porson voundod by llo
uso of forco during llo oporalion. Onco llo dangor vas romovod, lloro
musl bo an allompl lo approlond llo porson posing a risk villoul llo uso
of firoarms. Iurllor, llo infIiclion of larm lo uninvoIvod porsons musl
bo avoidod and somoono vlo las surrondorod or sloppod consliluling a
llroal musl nol bo firod upon.
207. WliIo llo oporalion vas boing conduclod in llo conloxl of an
armod confIicl, llo ROI providod an aullorily lo uso forco llal rofIoclod
llo naluro of a Iav onforcomonl oporalion, in vlicl llo aullorily lo uso
forco is moro Iimilod. In facl, llo ROI llal voro issuod for llo oporalion
appoar lo bo ovon moro Iimilod llan vlal can somolimos bo found in
an oporalionaI or Iav onforcomonl conloxl, bocauso lloy did nol ovorlIy
conlompIalo llo uso of oillor IollaI or Ioss-IollaI forco lo compIolo llo
mission or, as in a Iav onforcomonl conloxl, lo onforco llo Iav. WliIo llo
ROI did aullorizo llo uso of forco lo provonl llo llvarling of bringing
llo vossoIs inlo an IsraoIi porl, lloy aIso Iimilod llo uso of IollaI and Ioss-
IollaI voapons lo soIf-dofonso and dofonso of ollors. ConsoquonlIy, il
appoars llal llo uso of sucl voapons vas nol aullorizod diroclIy for llo
purposos of mission accompIislmonl, bul onIy villin llo scopo of soIf-
dofonso. Tloroforo, nolvillslanding llo cx pcsi |.cic calogorizalion of llo
848 |!.
849 |!., Annox D lo llo N.t.| Opcr.iicn.| Or!cr 3, supr. nolo 445.
IHH aclivisls as civiIians laking a dirocl parl in losliIilios, llo aullorily
lo uso forco providod lo llo soIdiors by llo navaI command vas moro
roslriclivo llan llo Iav roquirod. Sinco il is llo ROI llal sol oul llo
aullorily lo uso forco, llo anaIysis of lov lloso diroclions voro appIiod
providos ono framovork undor vlicl llo aclions of llo soIdiors can bo
assossod.
208. Tlo quoslion lo bo addrossod noxl is vlollor llo soIf-dofonso-basod
ROI issuod lo llo IsraoIi forcos voro consislonl vill llo doclrino foIIovod
by ollor miIilary forcos. Tlo InlornalionaI Inslilulo of Humanilarian
Iav RuIo of Ingagomonl Handbook providos a loIpfuI ovorviov of lov
llo Iav rogarding llo uso of forco in soIf-dofonso, dofonso of ollors, and
mission accompIislmonl is gonoraIIy inlorprolod and communicalod lo
miIilary porsonnoI. As llo Handbook acknovIodgos, boll inlornalionaI
and domoslic Iav rocognizo llo rigll of soIf-dofonso. Tlal rigll can aIso
incIudo llo aullorily lo dofond ollor porsons. SoIf-dofonso is avaiIabIo
in aII silualions, incIuding during armod confIicl.
850
Irom a doclrinaI
porspoclivo, llal rigll is oflon dividod inlo individuaI
851
, unil
852
and
nalionaI soIf-dofonso.
853
GonoraIIy, RuIos of Ingagomonl draflod for
miIilary forcos aullorizo llo uso of forco lo dofond onosoIf againsl an
allack or imminonl allack. Tlo uso of forco in soIf-dofonso roquiros llo uso
of nocossary and proporlionaI moans and aclions. Iurllor, a soquonliaI
oscaIalion of forco vill an aim lo uso llo Ioasl larmfuI oplion avaiIabIo
in lloso circumslancos is gonoraIIy roquirod in ordor for llo uso of forco
lo bo IavfuI.
854
Hovovor, vlollor sucl an oscaIalion of forco is possibIo
is dopondonl upon llo provaiIing circumslancos al llo poinl llal forco is
usod.
209. Anollor issuo is llo aullorily lo uso forco oulsido llo scopo of
soIf-dofonso or dofonso of ollors, llal is, for mission accompIislmonl.
Sucl aullorily cIoarIy oxisls undor inlornalionaI lumanilarian Iav.
850 Soo 1|c RO| H.n!occ|, supr. nolo 786, al 3, para. 8.
851 |!., al 83, Annox D (vloro individuaI soIf-dofonso is dofinod as llo rigll of an individuaI
lo dofond limsoIf or lorsoIf (and in somo casos ollor individuaIs) from |csii|c .ci or |csii|c
inicni. Tlis is nol lo bo confusod vill llo rigll of individuaI slalos lo acl in soIf-dofonco
as is rofIoclod in arl. 51 of llo UN Clarlor).
852 |!., al 85, Annox D (7'3) 6#.*Q1#*#'%# llo rigll of unil commandors lo dofond lloir unil,
ollor unils of lloir nalion, and ollor spocifiod unils againsl |csii|c .ci or |csii|c inicni.).
Hovovor, soo aIso E"-1$,"-F C%&F %77&,11"*-F %-3 1,#;N3,;,-9,, supr. nolo 344
(vloro lo nolos llal llo Unilod Slalos RuIo of Ingagomonl approacl of dislinguisling
bolvoon dofonding oIomonls or porsonnoI of a dofinod unil ('unil soIf-dofonso) from
'nalionaI soIf dofonso can bo misIoading in Iav of armod confIicl lorms sinco aII soIf-
dofonso inlornalionaI Iav in llal conloxl is nalionaI soIf-dofonso).
853 Soo 1|c RO| H.n!occ|, supr. nolo 786, al 3, para. 8.a.
854 |!., al 24, Appondix 5 lo Annox A, para. 5.1.
Hovovor, llo uso of forco boyond soIf-dofonso is nol uniquo lo armod
confIicl silualions. As las boon nolod:
BroadIy spoaking, during poacolimo, llo uso of forco is pormillod
in soIf-dofonso, in llo oxorciso of Iav onforcomonl aullorily, and
lo accompIisl oporalions or missions spocificaIIy aullorisod by
a liglor nalionaI aullorily or ollor govorning body, sucl as llo
U.N. Socurily CounciI.
855

Honco, lloro is a possibiIily lo aullorizo llo uso of forco boyond
soIf-dofonso in llo onforcomonl of llo Iav, aIllougl sucl uso is normaIIy
narrovIy proscribod.
856
210. Tlo ROI Handbook rocognizos llal nalionaI approaclos lo
soIf-dofonso oflon diffor on llo dofinilion and conlonl of llo rigll of
soIf-dofonso, and individuaIs oxorciso llis rigll in accordanco vill
lloir rospoclivo nalionaI Iav.
857
Tlis connoclion bolvoon nalionaI and
inlornalionaI Iav is rofIoclod in a docision from llo InlornalionaI TribunaI
for llo Iormor YugosIavia, Prcsccuicr t. D.ric Kcr!ic, vlicl loId llal llo
principIo of soIf-dofonso onslrinod in llo Romo Slalulo of llo InlornalionaI
CriminaI Courl rofIocls provisions found in mosl nalionaI criminaI codos
and couId bo rogardod as a ruIo of cuslomary inlornalionaI Iav.
858
Tlo
samo principIos aro provaIonl in IsraoIi domoslic Iav govorning llo uso of
forco in soIf-dofonso.
859

855 |!., al 4, para. 13-13b. (vlicl slalos in rospocl of Iav onforcomonl and UN sanclionod
oporalions |vjloro llo uso of forco is nol juslifiod by sc||-!c|cncc, bul is nonolloIoss
nocossary for accompIislmonl of an assignod miIilary mission, roasonabIo forco may bo
oxorcisod villin llo conslrainls of llo roIovanl nalionaI and inlornalionaI Iav), Ior a
discussion of llo aullorily lo uso forco during MIO, soo aIso HoinlscloI von Hoinogg,
M.riiimc |nicrccpiicn, supr. nolo 778, al 392-393, para 20.12.
856 Nolo llal ovon during Iav onforcomonl oporalions, llo uso of forco is nol slriclIy Iimilod lo
soIf-dofonso or llo dofonso of ollors. As llo U.N. B.sic Princip|cs, supr. nolo 810, al 2, para.
9 slalos, firoarms can bo usod lo arrosl a porson prosonling sucl a dangor |llroal lo Iifoj
and rosisling lloir aullorily, or lo provonl lis or lor oscapo, and onIy vlon Ioss oxlromo
moans aro insufficionl lo acliovo lloso objoclivos. Soo aIso llo Iuropoan Convonlion on
Human Riglls, al arl. 2(2):
Doprivalion of Iifo slaII nol bo rogardod as infIiclod in conlravonlion of llis arlicIo vlon il
rosuIls from llo uso of forco vlicl is no moro llan absoIuloIy nocossary:
(a) in dofonso of any porson from unIavfuI vioIonco,
(b) in cr!cr ic c||cci . |.u|u| .rrcsi cr ic prctcni csc.pc c| . pcrscn |.u|u|| !ci.inc!,
(c) in .ciicn |.u|u|| i.|cn |cr i|c purpcsc c| uc||ing . rici cr insurrcciicn |omplasis addodj.
Hovovor, llo doprivalion of Iifo in sucl circumslancos is narrovIy proscribod. Ior
oxampIo, soo 1|c McC.nn caso, supra nolo 809, N.c|ct. .n! Oi|crs t. Bu|g.ri., App. No.
43577/98, Iur. Cl. H.R., }udgmonl (2005), M.|.r.izis t. Grcccc, App. No. 50385/99, Iur. Cl.
H.R., }udgmonl (2004), and K.|cu||i t. 1ur|c, App. No. 38595/97, }udgmonl (2005/2006).
857 Soo 1|c RO| H.n!occ|, supr. nolo 786, al 3, para. 8.
858 Soo Irosoculor v. Dario Kordic, supr. nolo 793, al para. 451.
859 Soo o.g., C.A. 4191/05 ||ig.uz t. i|c Si.ic c| |sr.c| (unpubIislod, Ocl. 25, 2006), al para.
13, C.A. 4546/03 1.!css. t. i|c Si.ic c| |sr.c| (unpubIislod, }un. 23, 2004), al para. 4, C.A.
211. Tlo Commission is salisfiod llal llo ROI providod for llo
oporalion voro consislonl vill llo praclico foIIovod by ollor nalions
rogarding llo provision of ROI for inlornalionaI oporalions. Iurllor, il can
bo concIudod llal llo ROI for llo miIilary oporalion conlain principIos
simiIar lo llo luman riglls-basod norms appIicabIo in a Iav onforcomonl
conloxl.
860
Tloso principIos aro aIso rofIoclod in many rogionaI and
domoslic courl casos doaIing vill llo quoslion of soIf-dofonso and llo uso
of forco by Slalo aullorilios.
861
GeneraI Assessment Regarding the Use nI Fnrce during
the EnInrcement nI the BInckade
212. Wlon assossing llo uso of forco by IsraoIi soIdiors during llo
onforcomonl of llo bIockado againsl llo Gaza Slrip, lloro aro a numbor of
facluaI and IogaI faclors vlicl aro parlicuIarIy roIovanl.
862
Tloso faclors
incIudo llo rosislanco llal llo soIdiors facod and llo naluro of lloir
rosponso lo llal rosislanco, as voII as llo lypo of voapons usod. Tlis
anaIysis viII nov lurn lo llo naluro of llo ovoraII silualion on board llo
M.ti M.rm.r.. Hovovor, il slouId bo nolod, llal llo gonoraI principIos
guiding llo anaIysis aro appIicabIo lo llo uso of forco on llo ollor fIoliIIa
vossoIs.
!"# '+)75# &* )"# )"5#+) (&6#1 )& )"# :DE
Tlo ovoraII silualion
213. Tlo soIdiors loslimonios domonslralo llo facl llal llo silualion
lloy anlicipalod (ono of roIalivoIy minor civiI disobodionco)
863
vas nol
6147/07 Aoisi!ris t. i|c Si.ic c| |sr.c| (sliII unpubIislod, }uI. 2, 2009), al para. 33, C.A.
410/71 Hcrctiiz t. i|c Si.ic c| |sr.c|, SC} 26(1) 624, 628-629 (1972), C.A. 8554/00 Zr.oi|ct t.
i|c Si.ic c| |sr.c|, SC} 57(4) 913, 917-918, al para. 5 (2001), C.A. 20/04 K|icncr t. i|c Si.ic c|
|sr.c|, SC} 58(6) 80, 90-91 (2004).
860 Tloso incIudo llo uso of onIy nocossary and proporlionalo forco, oscaIalion of llo uso of
forco, uso of forco incIuding Ioss-IollaI and IollaI voapons as a Iasl rosorl, and llo uso of
IollaI forco in soIf-dofonso or llo dofonso of ollors againsl imminonl llroal of doall or
sorious injury.
861 Soo, o.g., 1|c McC.nn caso, supra nolo 809, M.|.r.izis t. Grcccc, supr. nolo 856, Huc|.t.ncn
t. Iin|.n!, App. No. 57389/00, Iur. Cl. H.R., }udgmonl (2007), Giu|i.ni .n! G.ggic t. |i.|,
App. No. 23458/02, Iur. Cl. H.R., }udgmonl (2009), and Buooins t. 1|c Uniic! King!cm,
App. No. 50196/99, Iur. Cl. H.R., }udgmonl (2005).
862 As is nolod in 1|c McC.nn caso, supra nolo 809, al 160, para. 148 (vloro il is nolod Iimiling
llo uso of forco lo silualions of absoIulo nocossily indicalos llal a slriclor and moro
compoIIing losl of nocossily musl bo ompIoyod |llanj llal normaIIy appIicabIo vlon
dolormining vlollor Slalo aclion is 'nocossary in a domocralic socioly.).
863 Soo, for oxampIo, para. 132 abovo. Il slouId bo nolod llal in llo slralogic discussions
prior lo llo oporalion, llo possibiIily llal firoarms migll bo prosonl vas monlionod,
llo ono lloy oncounlorod - moro llan ono soIdior doscribod llo scono
of vioIonl assauIls as boing ono of combal. Abovo vo doscribod llo
clronicIo of llo lakoovor of llo M.ti M.rm.r. and llo ollor slips. Ior
llo purposos of llo anaIysis loro, a fov dolaiIs doscribod abovo slouId
bo roinforcod.
Tlo IDI soIdiors - parlicuIarIy lloso vlo fasl-ropod dovn lo llo
roof of llo M.ti M.rm.r. from llo firsl loIicoplor - oncounlorod sovoro
vioIonco. WliIo iniliaIIy il vas oslimalod llal lloro voro 10 lo 15 IHH
aclivisls on llo roof, lloir numbors doubIod as llo firsl soIdiors Iandod
lloro. A dolorminod and organizod opposilion, vlicl aclod in concorl,
confronlod llo soIdiors. Groups of llroo lo fivo IHH parlicipanls mol oacl
soIdior as lloy fasl ropod lo llo roof.
864
Tloro vas an organizod offorl lo
llrov llo soIdiors of llo firsl loIicoplor (carrying 15 soIdiors) ovor llo
sido of llo roof or dovn llrougl lalcl oponings lo llo IHH aclivisls
vailing boIov. Tlo IHH aclivisls caplurod llroo of llo firsl four soIdiors
vlo Iandod on llo roof (soIdiors no. 1, no. 3 and no. 4) and lloro voro
sliII allompls by IHH aclivisls lo soizo soIdiors as Ialo as vlon soIdior no.
13 Iandod on llo roof.
865
Ivon vlon llo IDI soIdiors oslabIislod a socuro
aroa in ono parl of llo roof, llo IHH aclivisls romainod groupod logollor
lovards llo bov and slorn onds of llal dock. Groups of IHH aclivisls
ropoalodIy llroalonod llo soIdiors llrougl llo dock lalclos from llo
noxl Iovor dock (for llis roporl, caIIod llo bridgo dock). Sucl allacks
conlinuod from inlornaI slairvays and passagovays insido llo slip onco
llo bridgo dock vas onlorod by llo soIdiors for llo purposos of gaining
accoss lo llo bridgo and uIlimaloIy conlroI of llo slip.
214. AII llo IDI soIdiors vlo doscondod lo llo M.ti M.rm.r. from
llo firsl loIicoplor doscribo llo foIIoving facls, vlicl musl bo lakon inlo
accounl in llo oxaminalion of llo incidonls of llo uso of forco in vlicl
lloy look parl. Iirsi, IDI soIdiors voro al a numoricaI disadvanlago in
roIalion lo llo IHH aclivisls vlo voro oquippod vill a varioly of assauIl
voapons. Scccn!, llo IDI soIdiors oxpoclod a Iov IovoI of vioIonco and
llus proparod, as a main sconario, for an unarmod confronlalion vill llo
slip's passongors. Tlo soIdiors voro oquippod vill Ioss-IollaI voapons
(o.g. painlbaII guns, boanbags) as lloir primary voapons and lloir Iivo
firoarms (pisloIs or rifIos) voro usod as socondary voapons. 1|ir!, llo
nonolloIoss, from llo soIdiors loslimonios il is ovidonl llal llis did nol lranspiro dovn
llo clain of command lo llo individuaI soIdiors. Ior a dolaiIod anaIysis, soo para. 243-245
boIov.
864 Toslimony of llo commandor of Slayolol 13, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451,
al 4, Tlo roporl's summory, |!., al 5.
865 Toslimonios of soIdior no. 1, soIdior no. 2, soIdior no. 3, soIdior no. 4, soIdior no. 6, soIdior
no. 9, soIdior no. 10 and soIdior no. 13, |!.
larsl allack vlicl aII llo soIdiors dosconding from llo firsl loIicoplor
oxporioncod in addilion lo llo lvo faclors monlionod abovo, causod
llo soIdiors lo sonso llal a roaI, cIoar, and immodialo llroal vas boing
posod lo llo safoly and plysicaI voII boing of lloir foIIov soIdiors and
llomsoIvos.
215. In addilion, llo loslimonios of llo IDI soIdiors indicalo llal lloro
voro common foaluros lo llo vay llo IHH aclivisls drossod, Iookod,
and aclod. Tloy voro oquippod vill orango Iifo vosls, body armor, and
gas masks.
866
Hovovor, porlaps llo mosl dislinclivo claraclorislic of
oacl IHH aclivisls vas llal lloy voro armod vill voapons sucl as an
iron bars, cIubs, axos, sIingslols, knivos and, in somo casos, firoarms. In
lloir loslimonios, llo IDI soIdiors oxprossod surpriso al lloso porsons'
viIIingnoss lo conlinuo lo allack ovon vlon confronlod vill llo uso of
fIasl bang gronados and firoarms.
867
216. Hovovor, llo facl llal mosl of llo passongors on llo uppor docks
of llo M.ti M.rm.r. appoarod lo bo parl of llo IHH-diroclod group
rosisling llo capluro of llo slip doos nol moan ovory porson on lloso
docks (or lloso vlo may lavo rosislod moro passivoIy on llo ollor slips)
voro aulomalicaIIy dirocl parlicipanls in losliIilios. Ior oxampIo, during
llo figlling il vas nolod by ono soIdior llal on ono of llo Iovor docks
lovards llo conlor and slorn of llo slip lloro voro many plolograplors
vill camoras.
868
In llis rogard, lloro is a conlinuing roquiromonl undor
inlornalionaI lumanilarian Iav lo appIy llo principIo of dislinclion in
ordor lo onsuro llal allacks aro onIy diroclod al civiIians laking a dirocl
parl in losliIilios. Tlis moans llal ovory soIdior lad lo difforonlialo
bolvoon lloso porsons vlo voro dirocl parlicipanls in losliIilios and
lloso vlo voro nol.
Uso of voapons by llo IHH
217. Tlo uso of voapons is an imporlanl crilorion in dolormining
vlollor a porson is laking a dirocl parl in losliIilios. Il is aIso roIovanl lo
llo issuo of soIf-dofonso, sinco a fundamonlaI principIo of soIf-dofonso is
llal any uso of forco musl bo proporlionalo lo llo llroal llal is prosonlod.
Wloro Iav onforcomonl norms aro appIiod, faclors sucl as llo IovoI of
vioIonco causod by llo individuaI, llo injurios llal llo individuaI las
infIiclod on slalo agonls, and llo amounl of forco noodod lo subduo
lim lavo boon considorod in llo assossmonl of vlollor llo uso of forco
866 Soo para. 166 abovo.
867 Toslimony of soIdior no. 28, |DI ccmp|cmcni.r rcspcnsc c| .11.2010, supr. nolo 486, al 2.
vas proporlionalo.
869
Tlo uso of "proporlionalo forco" doos nol roquiro
llal a proporlionalo rosponso bo of llo samo naluro as llo llroal llal
is prosonlod. Ior oxampIo, a porson llroaloning llo appIicalion of IollaI
forco vill an iron bar doos nol lavo lo bo counlorod vill a cIub. Rallor,
llo uso of dofonsivo forco viII bo moasurod by llo dogroo of forco noodod
lo offoclivoIy dofond onosoIf or ollors and llo moans avaiIabIo lo do so.
218. Tlo rigll lo uso doadIy forco in soIf-dofonso is nol Iimilod lo
silualions vloro a Iifo is llroalonod, rallor, llo rigll is aIso appIicabIo
vlon sorious injury can rosuIl. Il is ovidonl from llo maloriaIs boforo llo
Commission llal llo IHH aclivisls armod llomsoIvos vill a vido array
of "coId" voapons llal voro usod in a mannor vlicl couId causo doall or
sorious bodiIy injury.
870

Tlo facl llal llo IHH aclivisls voro prodominaloIy armod vill lloso
voapons rallor llan firoarms doos nol aIlor llo facl llal lloso voapons
voro IollaI. Ono soIdior sufforod a sorious vound vlon slabbod in llo
slomacl.
871
Anollor soIdior avoidod rocoiving a knifo vound in lis closl
bocauso llo voapon slruck llo coramic pIalo of lis body amour.
872
Tlo
iron bars and ollor bIunl forco voapons causod significanl load injurios
lo lvo ollor soIdiors.
873
Tlo injurios infIiclod on llo soIdiors vliIo lloy
voro on llo ropos or as lloy Iol go of llo ropos incIudod brokon or injurod
arms and lands,
874
as llo soIdiors usod lloir arms lo prolocl llomsoIvos.
869 Bc|irs|i t. Bu|g.ri., App. No. 71420/01, Iur. Cl. H.R. (2010), al para. 135, Soo aIso C.A.
6157/04 03 Hcc| t. i|c Si.ic c| |sr.c| (unpubIislod, Sop. 9, 2005), al para. 14g.
870 Soo paras. 165, 167 abovo.
871 Toslimony of soIdior no. 3, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 3. Ior llo dolaiIs
of llo injurios causod lo soIdior no. 3, soo llo modicaI roporls rocoivod from Rambam
HospilaI and dolaiIod in |DI ccmp|cmcni.r rcspcnsc c| 15.11.2010. Among llo injurios
dolaiIod: slab vound in llo abdomon, faciaI bruiso and gasl in Iofl land, a fraclurod noso
and lorn london in llo fingor.
873 Toslimony of soIdior no. 4, |!., al 2-3. Ior llo dolaiIs of llo injurios causod lo soIdior
no. 4, soo llo modicaI roporls rocoivod from ToI Haslomor HospilaI and dolaiIod in
|DI ccmp|cmcni.r rcspcnsc c| 15.11.2010. Among llo injurios and lroalmonl dolaiIod:
comprossod fracluro lo llo skuII, lomaloma in rigll oyo, soizuros, llo soIdior vas
sodalod and allaclod lo rospiralor and rocoivod surgory lo lroal skuII fracluro. Toslimony
of soIdior no. 1, |!., al 2. Ior llo dolaiIs of llo injurios causod lo no. soIdior 1, soo llo
modicaI roporls rocoivod from Rambam HospilaI and dolaiIod in llo IDI's rosponso lo
llo Commission's roquosl on llis mallor, |DI ccmp|cmcni.r rcspcnsc ic i|c Ccmmissicns
Qucsiicns c| 15.11.2010, markod as oxlibil 145 in llo Commission's oxlibils |loroinaflor
|DI ccmp|cmcni.r rcspcnsc c| 15.11.2010j. Among llo injurios dolaiIod: a doop cul lo llo
scaIp, Iigll inlornaI bIooding in skuII, fraclurod skuII, injurios lo llo paIm of lis Iofl land
(an X-ray slovod llal llo injury vas suslainod in llo samo pIaco as a provious fracluro
and lloroforo, lis land vas pul in a casl), and moro.
874 Toslimony of soIdior no. 7, |!., Toslimony of soIdior no. 8, |!., Toslimony of soIdior no. 11,
|DI Ccmp|ciicn Rcspcnsc c| .11.2010, supr. nolo 486.
Tlo soIdiors voro indood proloclod by loImols and coramic vosls and
somo of llom roporl lo lavo boon proloclod from gravo injurios bocauso
of llis oquipmonl.
875
Ono soIdior slalod llal lis loImol lad boon slallorod
by llo slrikos lo rocoivod during llo incidonl (il slouId bo nolod llal
vliIo aII of llo soIdiors voro oquippod vill loImols, vlicl voro nol onIy
slrappod bul fixod lo lloir loads, somo of lloso loImols sliflod posilion
on lloir loads during llo fasl-roping).
876
Iurllor, llo vido sproad uso of
sIingslols lo firo iron baIIs, boIls, and gIass marbIos roprosonlod anollor
form of forco capabIo of causing sorious bodiIy injury.
877
Tlo allompls
by llo IHH aclivisls lo provonl llo IsraoIi soIdiors from boarding llo
M.ti M.rm.r. from llo Morona spoodboals by culling Iooso llo cIimbing
Iaddors roprosonlod anollor risk llal migll lavo causod doall or sorious
injury.
878
Tloso soIdiors, vlo voro allompling lo board llo M.ti M.rm.r.
from a smaIIor boal vliIo boll vossoIs voro undor vay, voro pIacod
al gravo risk by lloso aclions of llo IHH aclivisls. Moroovor, on lvo
occasions vlon llo IsraoIi vossoIs voro posilioning lo board, lvo ollor
Gaza fIoliIIa vossoIs, llo C|.||cngcr 1 and Bc.i 8000 manouvorod in sucl a
vay as lo polonliaIIy coIIido vill IsraoIi navaI vossoIs. Il roquirod quick
aclion by llo porsonnoI on llo IsraoIi vossoIs lo avoid coIIision.
879

Irom llo abovo, il is cIoar llal llo IsraoIi soIdiors - on board llo
M.ti M.rm.r. and on llo Morona spoodboals - voro confronlod vill a
Iargo group of IHH aclivisls vlo voro armod vill voapons capabIo of
causing doall and vlo voro inlonl on causing doall or sorious bodiIy
injury.
Uso of Iiroarms by llo IHH
219. Anollor issuo lo bo addrossod is vlollor IHH aclivisls usod
firoarms during llo incidonl. Iocusing on llo issuo of vlollor llo IHH
usod firoarms is misIoading, sinco as monlionod, lloro is ampIo ovidonco
llal IHH aclivisls usod ollor IollaI voapons in lloir assauIls on llo
IsraoIi soIdiors, vlicl juslifios llo uso of IollaI forco by lloso soIdiors
in soIf-dofonso or llo dofonso of ollors. Tloroforo, llo uso of firoarms is
875 Toslimonios of soIdiors no. 3, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, and loslimony
of soIdior no. 5, |!.
876 Toslimony of soIdior no. 5, |!.
877 Toslimonios of soIdior no. 11, soIdior no. 20, soIdior no. 24, soIdior no. 25, soIdior no. 26,
soIdior no. 27 and soIdior no. 38, |DI Ccmp|ciicn Rcspcnsc c| .11.2010, supr. nolo 486,
indicalo lloy voro largolod vill sIingslols.
878 Toslimony of Task Iorco Commandor, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 2-3.
879 Tlo IsraoIi vossoIs voro RHIB No' 2, llroalonod by llo CHAIIINGIR 1 (Soo Toslimony
of Task Iorco Commandor, al 1, |!.), and A Commanding VossoI, 'Zalaron', llroalonod by
llo Boal 8000 (Soo Toslimony of soIdior no. 19, al 1, |!., Soo loslimony of Commandor of
MissiIo Boal A, |!., al 2.)
nol dolorminalivo of vlollor IsraoIi forcos voro juslifiod in using IollaI
forco in soIf-dofonso. Hovovor, llo uso of firoarms by IHH aclivisls is an
imporlanl faclor for lvo roasons. Iirsl, llo uso of firoarms is imporlanl
bocauso il roIalos lo llo laclicaI silualion vlicl llo IsraoIi forcos confronlod.
Tlo possibIo uso of firoarms significanlIy loigllonod llo risk posod lo llo
soIdiors and lloir porcoplion of llal risk. Socond, oslabIisling llo IovoI of
llroal llal llo IsraoIi soIdiors boIiovod lloy voro facing, is a faclor in llo
assossmonl as lo vlollor lloir rosponso vas proporlionalo.
220. Tlo slalomonls of llo soIdiors incIudo a numbor of roporls aboul
llo uso of firoarms. Ono of llo saIionl issuos is vlollor llo IHH aclivisls
llomsoIvos brougll firoarms on board llo M.ti M.rm.r.. ApparonlIy,
lloro vas socurily scrooning for passongors boarding llo slips prior lo
doparluro. Sucl scrooning prosumabIy vas moanl lo onsuro, inicr .|i., llal
voapons couId nol lavo boon brougll on board. Hovovor, 40 aclivisls,
llo porsons vlo lavo boon doomod as llo 'lard-coro IHH group,' boardod
in IslanbuI villoul sucl a scrooning. Givon llis facl, and llo facl llal llo
ovidonco poinls lovards llo facl llal llo IHH lad a prooxisling pIan lo
vioIonlIy opposo llo IsraoIi boarding, llo Commission is nol convincod
llal llo pro-boarding socurily moasuros onsurod llal lloro voro no
voapons brougll on board llo M.ti M.rm.r. by llo IHH aclivisls.
221. Hovovor, llo Commission did nol find llal llo ovidonco poinl
concIusivoIy lo llo facl llal llo IHH aclivisls voro using firoarms vlicl
lloy brougll on board llo M.ti M.rm.r. llomsoIvos. Tlo IDI's posilion
llal llo IHH aclivisls brougll llo firoarm on board is primariIy basod on
llroo incidonls: llo liming of llo slooling of soIdior no. 2, llo discovory
of a non-IDI issuod buIIol in llo knoo of soIdior no. 5, and llo siglling of
a non-IDI issuod pisloI on llo roof of llo M.ti M.rm.r.. As viII bocomo
ovidonl, llis is nol sufficionl.
SoIdior no. 2 vas slol in llo slomacl. Tlo round llal lil soIdior
no. 2 vonl llrougl lis body and vas novor rocovorod. As a rosuIl, no
baIIislics losl couId bo porformod lo dolormino vlollor or nol il camo
from an IDI voapon. Hovovor, il las boon suggoslod in loslimony and
in a vrillon submission lo llo Commission llal soIdior no. 2 vas slol
boforo lloro vas an opporlunily for IsraoIi miIilary porsonnoI lo unloIslor
lloir voapons.
880
ApparonlIy llis concIusion vas roaclod basod on an
assossmonl by llo IsraoIi miIilary llal soIdior no. 2 vas slol villin llo
firsl 20 soconds of Ianding on llo dock of llo M.ti M.rm.r..
881
Hovovor,
880 C|ic| c| Si.||s Opcn Dccr 1csiimcn c| 11.8.2010, supr. nolo 70, al 26, Soo aIso Toslimony of
Commandor Slayolol 13, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 9.
881 |!.
SoIdior no. 2 did nol indicalo in lis loslimony llal llo slooling occurrod
villin llo firsl 20 soconds of Ianding on llo dock of llo M.ti M.rm.r.. Ho
slalos llal immodialoIy aflor lo nolicod llal lo vas slol in llo slomacl,
lo drov lis landgun, vlicl dolorrod a numbor of IHH aclivisls vlo
voro llroaloning lim, and lo llon firod from a rango of 5-6 molors al
a porson vill a landgun al llo back of llo Iofl vaII. Il is nol cIoar from
llo loslimony vlollor llis pisloI vas usod lo slool soIdior no. 2. Tlo
slalomonl of soIdior no. 2 indicalos llal lo firod simuIlanoousIy vill
soIdiors no. 13 and no. 14 al llo porson loIding llo pisloI.
882
SoIdior no.
17 on loIicoplor no. 2 slalos llal, from llo vanlago poinl of llo loIicoplor,
lo sav an IHH parlicipanl loIding vlal lo boIiovod lo bo a 9mm pisloI.
883

SoIdior no. 14 immodialoIy vonl lo llo body of llo IHH parlicipanl and
rolriovod a GIock pisloI. In rosponso lo llo Commission's inquiry, SoIdior
no. 14 slalod llal lo boIiovod llis pisloI lo bo an IsraoIi-issuod voapon.
Irom llis facl, il sooms llal llo IDI's oslimalo llal llo slooling lapponod
somo 20 soconds aflor llo fasl-roping from llo firsl loIicoplor bogan, couId
bo mislakon. In ordor for soIdior no. 13 and no. 14 lo bo invoIvod in llis
slooling, il vouId IikoIy lavo lad lo occur approximaloIy 1-2 minulos
aflor soIdior no. 2 Iandod on llo dock. SoIdior no. 12 slalod llal vlon lo
firsl oncounlorod soIdior no. 2, llal soIdior iniliaIIy llougll a Ioss-IollaI
voapon from llo IsraoIi forcos migll lavo lil lim. SlorlIy aflor, soIdior
no. 2 informod soIdior no. 12 llal lo lad roaIizod lo lad in facl boon
lil by a buIIol.
884
Il slouId bo nolod, llal al llis slago, llroo ollor IDI
soIdiors vlo voro abduclod by llo IHH aclivisl, lad aIroady fasl-ropod
lo llo roof of llo Mavi Marmara. Il sooms llal lvo of llom, voro aIroady
ovorpovorod and slrippod of lloir oquipmonl and voapons, incIuding
GIock pisloIs, al llis poinl.
885
Il is probabIo llal il is ono of lloso voapons
vlicl llo IHH parlicipanl lad in lis possossion. Tlus, llo Commission
finds il lard lo oslabIisl basod soIoIy on llis ovonl llal llo said voapon
vas nocossariIy a voapon brougll on board llo M.ti M.rm.r. by an IHH
aclivisl.

SoIdior no. 5 rocoivod a gun slol vound in llo knoo. Ho boIiovos
llal lo vas slol vlon lloro voro onIy fivo soIdiors on llo dock. In llis
caso, llo buIIol romainod in lis knoo. Aflor llo buIIol vas rocovorod from
lis knoo, il vas dolorminod llal il vas nol of a lypo prosonlIy in uso by
llo IsraoIi miIilary. Hovovor, in llo Cliof of Slaff's gonoraI loslimony, llo
882 Toslimony of soIdior no. 2, |!., Toslimony of soIdior no. 13, |!., and Toslimony of soIdior
no. 14, |!.
883 Toslimony of soIdior no. 17, |!., al 1, SuppIomonlary Toslimony of soIdior No. 17, |DI
Ccmp|ciicn Rcspcnsc c| .11.2010, supr. nolo 486.
884 Toslimony of soIdior no. 12, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 3.
885 Toslimony of soIdior no. 13, |!., al 3, Toslimony of soIdior no. 14, |!., al 1.
Commission vas informod llal llo buIIol vas 9 mm in caIibor and lad
proviousIy boon in uso by llo IDI unliI 2007.
886
Again, villoul baIIislics
losls il is nol possibIo lo confirm vlicl voapon firod llo buIIol.
Tloro voro ollor incidonls in vlicl IDI soIdiors roporlod sooing
IHH parlicipanls uso voapons or vloro lloy obsorvod llo offocls of
gunfiro. Ior oxampIo, soIdior no. 33 firod al llo Iogs of an IHH parlicipanl
vlo vas firing a rovoIvor al llo soIdiors.
887
Wlal vas doscribod in miIilary
lorminoIogy as Iong guns" or rifIos, voro aIso soon on llo bridgo dock
IovoI. SoIdior no. 9 slalod llal lo firod al an IHH parlicipanl vlon lo sav a
gun barroI, vloso Iongll and caIibor corrospondod vill a rifIo, prolruding
from an oponing of llo fIoor.
888
Anollor soIdior slalod llal lo sav a Iong
firoarm boing llrovn ovor llo sido of llo slip.
889
Anollor soIdior slalod
llal lo sav boll a Iong gun and a pisloI boing firod by IHH parlicipanls,
aIboil llo Iallor siglling vas mado from a dislanco of 40 lo 50 molors.
890

Tloso voapons voro novor Iocalod. Tloro aro aIso slalomonls from IsraoIi
miIilary porsonnoI on board llo Morona spoodboals and accompanying
navaI vossoIs slaling llal gunfiro vas diroclod al llo Morona spoodboals.
891

Al ono poinl, a Morona spoodboal roducod ils spood and quickIy aIlorod
ils courso in ordor lo avoid sucl firo.
892

Ono soIdior boIiovod lo sav a landgun Iying on llo dock vill a
lammor llal boro no rosombIanco lo llo 9mm GIock landgun usod
by llo IsraoIi soIdiors. Hovovor, llis voapon vas nol found aflor llo
incidonl.
893
Iurllormoro, mosl of llo loslimonios do nol spocify vlollor
llo voapons lloy roporlod sooing voro voapons usod by llo IDI. Il is
imporlanl lo nolo llal during llo iniliaI slagos of llo figlling, lvo mini-
Uzi voapons voro lakon from caplurod IsraoIi soIdiors.
894
An IDI pisloI
vill an omply magazino vas aIso found liddon undor a sofa Iocalod
on ono of llo Iovor docks. Undor lloso circumslancos, llo Commission
cannol oslabIisl vlollor IHH aclivisls brougll firoarms on board llo
M.ti M.rm.r..
886 C|ic| c| Si.||s Opcn Dccr 1csiimcn c| 11.8.2010, supr. nolo 70.
887 Toslimony of soIdior no. 33, |DI Ccmp|ciicn Rcspcnsc c| .11.2010, supr. nolo 486, al 2.
888 SuppIomonlary Toslimony of soIdior no. 9, |!.
891 Toslimony of soIdior no. 19, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, Toslimony of
Toam Commandor R, |!., Soo aIso SuppIomonlary loslimony of Commandor of Conlor A,
|DI Ccmp|ciicn Rcspcnsc c| .11.2010, supr. nolo 486, al 2.
892 Toslimony of soIdior no. 19, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 2.
894 Toslimony of soIdior no. 1, |!., al 2, Toslimony of soIdior no. 3, |!., al 2.
222. Hovovor, and laving roviovod llo avaiIabIo ovidonco, llo
Commission finds llal mombors of llo IHH aclivisls usod firoarms againsl
IsraoIi forcos on May 31, 2010, in lloir offorls lo ropoI llo boarding of llo
M.ti M.rm.r. by IsraoIi miIilary porsonnoI. In roacling llis concIusion,
llo Commission las lakon inlo considoralion llal llo moIoo on board
llo M.ti M.rm.r., ospociaIIy during llo iniliaI slagos on llo roof, vas
a silualion of considorabIo confusion. Tlo uso of sIingslols vill molaI
and gIass baIIs addod lo llal confusion bocauso somo soIdiors boIiovod
lloy roprosonlod pisloIs and gunfiro,
895
aIllougl ollor soIdiors slalod
llal lloy difforonlialod bolvoon llo sound of gunfiro and marbIos firod
by sIingslols.
896
In addilion, iron bars voro somolimos mislakon for llo
barroIs of rifIos.
897
Ior a considorabIo poriod of limo, llo soIdiors llougll
soIdior no. 5 lad boon slol in llo load, vlon lis load injurios acluaIIy
rosuIlod from plysicaI assauIls.
898
Sucl confusion is a normaI parl of
confIicl, oflon lormod llo fog of var. Hovovor, llo plysicaI ovidonco
of gunslol vounds, llo slalomonls of numorous soIdiors oporalionaIIy
oxporioncod in llo uso of firoarms vlo gavo accounls of sooing voapons
in llo lands of IHH aclivisls, and llo facl llal IHH aclivisls lad accoss lo
caplurod IDI landguns and mini-Uzis, supporls llo concIusion llal llo
IHH usod firoarms againsl IsraoIi miIilary porsonnoI.
223. IoIIoving llo concIusion llal llo IHH aclivisls did indood uso
firoarms, lloro aro lvo faclors llal slouId bo lakon inlo accounl vlon
assossing llo uso of forco by llo IDI soIdiors. Tlo uso of firoarms by llo
IHH impaclod llo soIdiors in lvo vays. Iirsl, vliIo llo oporalion lad
pIannod for Ioss-IollaI voapons lo bo carriod as llo primary voapon,
vill IollaI voapons romaining loIslorod, llo iniliaI figlling on llo roof
rosuIlod in an ordor lo svilcl lo Iivo voapons. Tlis ordor appoars lo bo
roasonabIo givon llo naluro of llo vioIonco oxporioncod by llo soIdiors,
llo conlinuing llroal llal llo soIdiors facod, and llo facl llal a numbor
of soIdiors voro soriousIy voundod. AIllougl llis moanl llal oflon llo
mosl roadiIy avaiIabIo voapon lo llom vas a IollaI voapon, il did nol
moan llal llo uso of Ioss-IollaI voapons vas abandonod. Somo of llo
IDI soIdiors conlinuod lo uso Ioss-IollaI voapons, oillor by svilcling
bolvoon IollaI and Ioss-IollaI voapons or as lloir primary voapon.
899

895 Ior oxampIo, soo Toslimony of soIdior no. 13, |!., al 4.
896 Soo SuppIomonlary Toslimony of soIdior no. 9, |DI Ccmp|ciicn Rcspcnsc c| .11.2010, supr.
nolo 486, Soo aIso Toslimony of soIdior no. 33, |!.
898 Toslimony of soIdior no. 14, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 2, Tlo modic
lroaling soIdior no. 5 vlo duo lo llo sovorily of lis load injury llougll lo lad boon slol
in llo load in addilion lo laving fracluros in llo Iimbs and a buIIol in llo knoo.
899 Toslimony of Commandor Slayolol 13, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al
SocondIy, llo uso of firoarms aIso impaclod on llo soIdiors viov
of llo naluro and imminonco of llo llroal. AssauIls vill iron bars and
knivos roquiro a cIoso proximily bolvoon llo assaiIanl and llo porson
boing assauIlod (aIllougl lloro is aIso considorabIo ovidonco llal in
somo casos IHH aclivisls llrov iron bars and ollor objocls al llo soIdiors
as voII). GonoraIIy, lovovor, llo uso of sucl voapons moans llal llo
assaiIanl las lo oxposo limsoIf plysicaIIy lo llo porson boing llroalonod.
In sucl circumslancos, vlon idonlifying sucl a voapon from a dislanco,
lloro is oflon a groalor opporlunily lo uso Ioss-IollaI voapons in rosponso.
Hovovor, llo uso of firoarms doos nol roquiro llal samo dogroo of plysicaI
oxposuro or cIoso proximily by llo assaiIanl. Wlon il bocamo cIoar lo llo
soIdiors llal llo IHH aclivisls voro using firoarms, llo soIdiors voro
parlicuIarIy cognizanl of llo loigllonod risk and llo difforonl naluro
of llo llroal. As a gonoraI ruIo, vlonovor an individuaI is carrying a
firoarm, lloro is a loigllonod risk lo llo Iivos of slalo agonls and ollors.
Tlus, ovon if llo firoarm is nol diroclIy aimod al anyono, llo uso of IollaI
forco in rosponso can undor corlain circumslancos bo considorod lo bo
nocossary and proporlionalo.
900

!"# R+)75# &* )"# S#6(&'6# /C )"# :DE
IogaI Tosl for Assossing Docision Making
224. A numbor of faclors slouId bo lakon inlo considoralion vlon
assossing llo IavfuInoss of llo uso of forco by individuaI soIdiors.
901
Tlo
losl for assossing a docision by a soIdior lo largol a miIilary objoclivo is
vlollor il is roasonabIo lo boIiovo llal llo polonliaI largol is a IavfuI ono.
902

5.
900 Huc|.t.ncn t. Iin|.n!, supr. nolo 861, al para. 97.
901 Soo Giu|i.ni .n! G.ggic t. |i.|, supr. nolo 861, al paras. 217-225 (vloro llo Iuropoan
Courl of Human Riglls look inlo accounl llo findings of an invosligaling judgo vlicl
vas basod on llo loslimonios and imagos sloving llo vioIonco of llo domonslralors'
allack, llo conslanl barrago of slonos lo vlicl llo volicIo vas subjoclod and vlicl causod
plysicaI larm lo ils occupanls, and llo aggrossion slovn lovards llo passongors by llo
domonslralors, vlo lad conlinuod lo surround llo volicIo al vory cIoso quarlors vliIo
llrusling lard objocls insido. Tlis silualion of porsislonl dangor undoniabIy amounlod,
in llo judgo's viov, lo a roaI and unjusl llroal lo llo porsonaI inlogrily of |llo poIicomanj
and lis coIIoaguos and caIIod for a dofonsivo roaclion llal lad boon bound lo cuIminalo in
|poIicomanj using llo onIy moans al lis disposaI: lis voapon. Hovovor, llo Courl las
aIso omplasizod llal pubIic dislurbancos doos nol givo Iav-onforcomonl officiaIs carlo
bIanclo lo uso firoarms. On llo conlrary, lloro is a loigllonod rosponsibiIily lo organizo
llo aclions of llo poIico carofuIIy vill a viov lo minimizing a risk of doprivalion of Iifo
or bodiIy larm), Soo aIso HaIod Ganaim, Doron Monaslo & Mordoclai Kromizor, 1|c
Bcun!.rics c| |xcrcising I.i.| Icrcc u|cn Arrcsiing, 25 6,7%# A$B3",1 703, 730-731 (2009).
902 Irosoculor v. GaIic, Caso No. IT-98-29-T, }udgmonl, paras. 50, 51, 55 (Doc. 5, 2003), Soo
aIso MiclaoI N. Sclmill, I.u|i Iincs in i|c I.u c| Aii.c|, in 0,1$"-7 $/, L*B-3%&",1 *;
In a Iav onforcomonl conloxl, llo roasonabIonoss of llo uso of forco vlon
dopriving somoono of lis or lor Iifo is gonoraIIy docidod on llo basis
of llo facls "vlicl llo usor of llo forco lonoslIy boIiovod lo oxisl: llis
invoIvos llo subjoclivo losl as lo vlal llo usor boIiovod and an objoclivo
losl as lo vlollor lo lad roasonabIo grounds for llal boIiof."
903
Tlus, boll
inlornalionaI lumanilarian Iav and luman riglls Iav rocognizo llo losl
of "roasonabIo boIiof" vill rospocl lo docisions lo uso forco.
904
A losl of
roasonabIo boIiof doos nol roquiro porfoclion. A porson using forco can
lavo an lonosl bul mislakon boIiof rogarding llo basis upon vlicl llo
forco is usod.
905
In a Iav onforcomonl conloxl, onco roasonabIo boIiof is
oslabIislod, "il musl llon bo dolorminod vlollor il vas roasonabIo lo uso
llo forco in quoslion in llo provonlion of crimo or lo offocl an arrosl."
906

225. GonoraIIy, llo Iav aIso rocognizos llal docisions oflon lavo lo
bo mado undor duross and in a comprossod limo poriod. As llo Unilod
Slalos Supromo Courl famousIy slalod, Dolaclod rofIoclion cannol bo
domandod in llo prosonco of an uplurnod knifo."
907
Iurllor, il las boon
nolod, IoIico officors aro oflon forcod lo mako spIil-socond judgmonls -
in circumslancos llal aro lonso, uncorlain, and rapidIy ovoIving - aboul
llo amounl of forco llal is nocossary in a parlicuIar silualion."
908
IinaIIy,
as llo Iuropoan Courl of Human Riglls las indicalod, a courl making
an cx pcsi |.cic oxaminalion cannol, dolaclod from llo ovonls al issuo,
subslilulo ils ovn assossmonl of llo silualion for llal of an officor vlo
vas roquirod lo roacl in llo loal of llo momonl lo avorl an lonoslIy
porcoivod dangor lo lis Iifo."
909
Tlis principIo is aIso rocognizod undor llo
IsraoIi Iav of soIf-dofonso.
910

Tlo difficuIlios of assossing in lindsigll llo approprialo rosponso
lo IollaI forco slouId bo kopl in mind vlon rovioving llo aclions lakon
by IsraoIi soIdiors on llo M.ti M.rm.r.. Tlo confinod and crovdod
spacos on llo slip and llo ropoalod allompls by IHH aclivisls lo pross
lomo IollaI allacks vill iron bars, knivos, clairs, olc, oflon Iofl llo IsraoIi
soIdiors vill IillIo limo lo conlompIalo llo uso of Ioss-IollaI moans. Tlal
5-$,&-%$"*-%# GB.%-"$%&"%- 6%H 277, 304 (Susan Broau & Agnioszka }acloc-NoaIo,
ods. 2006).
903 1|c McC.nn caso, supr. nolo 809, al para. 134.
904 Irosoculor v. GaIic, supr. nolo 902, 1|c McC.nn caso, supr. nolo 809, al para. 200.
905 1|c McC.nn caso, supr. nolo 809, al para. 200, Huc|.t.ncn t. Iin|.n!, supr. nolo 861, al
para. 96, Soo aIso Giu|i.ni .n! G.ggic t. |i.|, supr. nolo 861, al para. 224.
906 1|c McC.nn caso, supr. nolo 809, al para. 134.
907 Soo U.S. Supromo Courl, Brcun t. Uniic! Si.ics 256 U.S. 335, 343 (1921).
908 Soo U.S. Supromo Courl, Gr.|.m t. Ccnncr 490 U.S. 386, 397 (1989).
909 Soo aIso Giu|i.ni .n! G.ggic t. |i.|, supr. nolo 861, al para. 224, and Buooins t. 1|c Uniic!
King!cm, al para. 139, |!.
910 ||ig.uz t. i|c Si.ic c| |sr.c|, supr. nolo 859.
boing said, as a roviov of llo ovidonco oslabIislos, llo soIdiors mado uso
of Ioss-IollaI moans ovon in llo conloxl of llo crovdod condilions on llo
dock.
Tlo Uso of IollaI and Ioss-IollaI Woapons
226. A proporlionalo rosponso onvisagos a gradualod uso of forco vill
an omplasis on considoring llo uso of Ioss-IollaI voapons prior lo llo
uso of IollaI onos. Sucl a gradualod rosponso, lovovor, is nol roquirod
undor inlornalionaI lumanilarian Iav. WliIo llo lorm non-IollaI is
oflon usod doclrinaIIy, llo IDI profors llo lorm Ioss-IollaI voapons.
Tlis cloico rofIocls llo roaIily llal any voapon las llo polonliaI for IollaI
consoquoncos.
Tlo NATO dofinilion for non-IollaI voapons liglIiglls llal vlal
soparalos IollaI from Ioss-IollaI voapons is llo inlondod offocl of
incapacilalion combinod vill a Iov probabiIily of doall or injury:
Non-IollaI Woapons aro voapons vlicl aro oxpIicilIy dosignod
and dovoIopod lo incapacilalo or ropoI porsonnoI, vill a Iov probabiIily
of falaIily or pormanonl injury, or lo disabIo oquipmonl, vill minimaI
undosirod damago or impacl on llo onvironmonl.
911
Tlis dofinilion is simiIar lo llo IsraoIi dofinilion of Ioss-IollaI voapons
found in llo ROI for llo oporalion, vlicl slalod: An inslrumonl vlicl,
by ils purposo, can causo a lomporary funclion-disabiIily, and vlicl ils
probabiIily lo causo doall or IollaI injury, vlon usod in ils propor vay,
is Iov.
912

Il slouId bo nolod llal a voapon dosignod lo bo Ioss-IollaI may
novorlloIoss causo doall or injury, sucl as a boanbag round usod al cIoso
rango. ObviousIy, llo facl llal a voapon is IaboIod as Ioss-IollaI doos
nol moan il cannol bo usod in cxircmis in soIf-dofonso. Tloroforo, ovon if
llo ROI pul safoly roslriclions on ils uso, llal doos nol moan il couId nol
bo usod oulsido lloso roslriclions undor llroal of sorious injury or doall,
as Iong as il vouId mool llo roquiromonl of IogaIIy pormissibIo uso of
proporlionalo forco.
227. Tlo Ioss-IollaI voapons usod during llo oporalion incIudod boll
impacl voapons (painlbaII guns and boanbag rounds) and conduclod-
onorgy voapons (in llis caso, Tasors). Tlo uso of painlbaII guns vas a cloico
llal rofIoclod llo facl llal a vory Iov IovoI of rosislanco vas anlicipalod. In
911 Soo Norll AlIanlic Troaly Organizalion (NATO), NA1O Pc|ic cn Ncn-Ici|.| Wc.pcns,
Iross RoIoaso, para. 3 (Ocl. 13, 1999) .t.i|.o|c .i vvv.nalo.inl/docu/pr/1999/p991013o.
llm.
912 N.t.| Opcr.iicn.| Or!cr 3, supr. nolo 445, annox G, al 61.
llis conloxl, il slouId bo nolod llal llo coIor of llo painlbaIIs closon for
llo oporalion vas rod. RolrospoclivoIy, il lurnod oul llal llis cloico vas
usod by various advocalos lo cIaim llal llo rod markor in llo painlbaII
rounds vas bIood on llo docks and oulor luII of llo M.ti M.rm.r.. Tloso
advocalos usod llis as ovidonco llal llo IDI soIdiors usod oxcossivo forco,
vlon, in facl, jusl llo opposilo vas llo caso.
913
IIasl bang gronados
voro usod as a varning dovico. Tloso gronados, vlicl croalo boll a Ioud
noiso and brigll Iigll, lavo Iimilod polonliaI for injury ovon if ignilod noxl
lo a porson. Indood, al ono poinl ono of llo IsraoIi soIdiors ignilod sucl a
gronado againsl lis body vliIo lo vas Iying on llo dock in a succossfuI
offorl lo causo llo group of IHH aclivisls vlo voro assauIling lim lo slop
back.
914

In llis conloxl il slouId bo monlionod llal llo uso of ollor Ioss-IollaI
voapons vas considorod. Duo lo llo cIoso quarlors of llo vossoI, il vas
docidod nol lo uso corlain ammunilions, sucl as balon rounds
915
and
llo uso of CS gas (i.o. loargas or maIodoranl) vas found inapproprialo lo
llo naluro of llo oporalion (duo lo llo condilions al soa and llo prosonco
of a slrong dovndrafl from llo loIicoplors, vlicl did nol aIIov for lloir
offoclivo uso).
916
AII Ioss-IollaI voapons usod by llo IsraoIi forcos undorvonl IogaI
and modicaI roviov prior lo boing aullorizod for uso, and llo soIdiors
rocoivod oxlonsivo lraining on llom prior lo dopIoymonl (soo para. 120,
foolnolo 441). A numbor of llo Ioss-IollaI voapons voro spocificaIIy
approvod and issuod for llis oporalion, and llo navaI forcos - vlicl in
llo ordinary courso of ovonls vouId nol uso sucl voapons - rocoivod
spociaIizod lraining on lloir uso.
917
OvoraII, llo Commandor of llo
Slayolol 13 assossod llal llo painlbaII guns and ollor Ioss-IollaI voapons
provonlod larslor rosuIls and voro offoclivo vlon Iimilod forco vas
roquirod.
918
Tlo commandor of conlor B, commanding llo forco laking
913 Soo Ycu1uoc. |sr.c|i P.inio.|| Aii.c| cn i|c M.ti M.rm.r., vvv.youlubo.com/
valcl`v=cO4Hirkx7iv (2010).
914 Toslimony of SoIdior no. 6, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 3.
915 C|ic| c| Si.||s Opcn Dccr 1csiimcn c| 24.10.2010, supr. nolo 554, al 14-15.
916 1|c |i|.n! Rcpcri, supr. nolo 402, al 92-93, 155-157, Soo aIso A!!iiicn.| Prciccc| |, supr.
nolo 292, arl. 36, vlicl providos for llo IogaI roviov of voapons, moans or mollods of
varfaro lo dolormino vlollor ils ompIoymonl vouId, in somo or aII circumslancos, bo
prolibilod by llis IrolocoI or by any ollor ruIo of inlornalionaI Iav appIicabIo lo llo
Higl Conlracling Iarly. Sucl a roviov oflon roIios on modicaI ovidonco rogarding llo
polonliaI or acluaI offocl of sucl voapons.
917 1|c |i|.n! Rcpcri, supr. nolo 402, al 92-93.
918 Toslimony of Commandor Slayolol 13, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al
8-10.
ovor Bc.i 8000 and G.zzc, oxprossod a simiIar opinion.
919
Hovovor, llo
slalomonls of llo IsraoIi soIdiors on board llo M.ti M.rm.r. indicalo llal
lloso voapons voro nol aIvays offoclivo in slopping IHH aclivisls vlo
voro inlonl on larming llom.
920

228. Tlo lorm IollaI voapon, vlicl is dofinod in llo Oxford
Diclionary as sufficionl lo causo doall, is associalod vill llo moro
lradilionaI voapons carriod by llo IsraoIi soIdiors: llo GIock 9mm
landgun, llo 9 mm mini-Uzi and M-16 assauIl rifIos. Tlo voapons
carriod by llo loIicoplor borno forco voro loIslorod, oillor allaclod lo
llo oquipmonl vosls or lo llo Iogs of llo soIdiors (in llo caso of llo 9mm
landgun) or slrappod lo lloir backs (for llo mini-Uzi and M-16s).
921
Tlo
mini-Uzi, vlicl is capabIo of aulomalic firo, vas onIy usod in llo singIo
slol modo llrougloul llo oporalion.
922
Tloso voapons appoarod lo causo
llo majorily of llo doalls and sorious injurios lo llo IHH aclivisls.
923
Islimaling llo numbor of slols firod llal acluaIIy lil lloir largol is
vory difficuIl. Irom llo miIilary dobriofings, il appoars llal, during llo
courso of llo oporalion on llo M.ti M.rm.r., llo IsraoIi forcos disclargod
308 rounds (from llo soIdiors' loslimonios, il appoars llal 110 rounds
voro slol aimod al porsons, an oslimalod 39 lils voro idonlifiod by llo
soIdiors, oul of vlicl an oslimalod 16 parlicipanls voro injurod by slols
lo llo conlor of mass), 87 boan bags, and 264 painl baII rounds.
924
Tlo
numbor of rounds firod doos nol in and of ilsoIf impIy llal llo uso of forco
vas oxcossivo. Irom llo soIdiors loslimonios, il appoars llal a significanl
numbor of rounds voro nol firod diroclIy al IHH aclivisls. Tlo IDI
appIiod a gradualod uso of forco, incIuding llo uso of varning slols and
dolorring firo.
925
Wlon approprialo lo Iimil llo clanco of causing doall or
sorious injury, llo IsraoIi miIilary's gradualod uso of forco aIso providos
919 Toslimony of Commandor of Conlor B, |!., al 3-4.
920 Toslimony of soIdior no. 11, |DI Ccmp|ciicn Rcspcnsc c| .11.2010, supr. nolo 486, Toslimony
of soIdior no. 22, |!., and Toslimony of soIdior no. 24, |!.
921 Toslimony of soIdior no. 5, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 2-4, Soo aIso
1|c |i|.n! Rcpcri, supr. nolo 402, al 108-109.
922 1|c |i|.n! Rcpcri, supr. nolo 402, al 104, 107.
923 |!., al 107-108.
924 |!., al 109, Soo aIso loslimony of Commandor Slayolol 13, |nuir |xp.nsicn c| 20.9.2010,
supr. nolo 451, al 8, according lo lim il las boon oslimalod llal 70 of llo rounds voro
diroclod lo llo bodios of IHH porsonnoI, and aboul 50 lo lloir Iogs and llo rosl of llom for
varning onIy.
925 1|c |i|.n! Rcpcri, supr. nolo 402, al 117, AIllougl llo dofinilions aro nol prociso, il sooms
llal llo dislinclion bolvoon varning slols and dolorring firo is primariIy dolorminod on
llo basis of vloro llo round is aimod. Warning slols aro diroclod avay from llo largolod
porson, vliIo dolorring firo is aimod al a safo Iocalion bul cIoso lo an individuaI in ordor
lo provido a moro dirocl varning. Ior oxampIo, during llo oporalion, dolorring firo vas
diroclod al llo sidos and dock of llo slip.
for firing al llo Iogs and fool of a porson. Tlis uso of forco appoars lo lavo
rosuIlod in llo vounding of a numbor of llo IHH aclivisls. In dolormining
vlollor sucl disabIing firo is oxcossivo, il musl bo voiglod againsl llo
aIlornalivo of slooling al llo conlor of visibIo mass of llo largol, vill
incroasod IikoIilood of doall or sorious injury.
229. Tlo ovidonco slovs llal llo IDI soIdiors mado considorabIo uso of
gradualod forco during llo oporalion, vill soIdiors svilcling ropoalodIy
bolvoon Ioss-IollaI and IollaI voapons, doponding upon llo llroal boing
posod.
Iiring from HoIicoplors
230. Tlo Commission las roaclod llo concIusion llal llo IsraoIi army
did nol firo any rounds from llo loIicoplor. Tlo onIy forco llal vas usod
on llo loIicoplors voro 3-4 fIasl bang gronados llal voro dopIoyod
from llo firsl loIicoplor in llo iniliaI slagos of llo fasl roping lo allompl
lo slop IHH aclivisls from inlorforing vill llo ropos. Tlo accuralo uso of
firoarms from a loIicoplor roquiros boll spocific oquipmonl and spociaIIy
lrainod porsonnoI, vill vlicl llo loIicoplors voro nol oquippod.
926
A ligl angIo of llo lrajoclory of vounds in somo docoasod IHH
aclivisls couId lavo boon llo rosuIl of a numbor of faclors. Iirsl, somo
firing look pIaco undor circumslancos vloro IHH aclivisls voro on lop
of or bonl ovor ono IsraoIi soIdior vlo vas Iying on llo dock vliIo lloy
voro assauIling lim.
927
SocondIy, firing aIso look pIaco from llo roof
dovn lovards llo IHH aclivisls vlo voro llroaloning llo IDI soIdiors
on a Iovor dock.
928
IinaIIy, in somo inslancos, numorous rounds voro
firod oillor by ono soIdior or by moro llan ono soIdior lo slop an IHH
aclivisl vlo vas a llroal lo llo Iivos of llomsoIvos or ollor soIdiors.
929
Il
926 Soo loslimony of Commandor of Sloyolol 13, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451,
al 9-10, Toslimony of llo piIol of HoIicoplor 1, |!., al 2, Toslimony llo piIol of HoIicoplor
2, |!., al 1-2, Toslimony llo piIol of HoIicoplor 3, |!., al 1-2.
927 Ior oxampIo, soo llo loslimony of soIdior no. 1, |nuir |xp.nsicn c| 20.9.2010, supr. nolo
451, al 2, Toslimony of soIdior no. 2, |!., al 2, Toslimony of soIdior no. 3, |!., al 2.
928 Ior oxampIo, as sol oul in llo loslimony of soIdior no. 12, |!., al 4.
929 Ior oxampIo, soo llo loslimony of soIdior no. 2, |!., al 2, indicalos lo firod 2-3 rounds lo llo
conlor of mass and boIov and ono round lo llo load (llo soIidor loslifiod llal aflor firing
llo Iasl round llo IHH porsonaI foII and lo coasod firo), Soo aIso llo loslimony of soIdior
no. 7, |!., al 2, vlo slalos lo firod 5-6 rounds al a porson running al lim vill a cIub.
Ior oxampIo, in firing al an IHH parlicipanl vill a pisloI in lis land, soIdior no. 13, |!.,
al 2, oslimalos llal lo, soIdior no. 2 and soIdior no. 14 firod 15 rounds al llal porson,
SimiIarIy, soIdiors no. 8, |!., al 2, slalos llal lo and no. 12 firod al llo samo group of IHH
parlicipanls llroaloning llom vill llo voapons lloy lad in lloir lands al llo limo (vill
GIock pisloIs).
cannol bo discounlod llal somo rounds impaclod vlon llo porson lad
aIroady slarlod lo faII.
Uso of Tasors and ollor Ioss-IollaI Woapons lo Iffocl Dolonlion
231. Inloronl in llo aullorily lo uso forco undor inlornalionaI
lumanilarian Iav is llo povor lo dolain somoono vlo posos a llroal lo
llo safoly of miIilary porsonnoI or vlo is inlorforing vill llo conducl
of a mission. SimiIarIy, Iav onforcomonl norms provido for llo uso of
forco lo arrosl a porson prosonling a dangor of doall or sorious injury or
rosisling lloir aullorily.
930
Tlis quoslion is parlicuIarIy roIovanl lo llo uso
of forco vill Ioss-IollaI voapons againsl lloso porsons vlo aro assossod
nci lo lavo lakon a dirocl parl in losliIilios and lo vlom llo principIos of
"nocossily" and uso of "proporlionalo forco" appIy as a mallor of Iav.
In a domoslic Iav onforcomonl conloxl, llo quoslion of vlon Ioss-
IollaI voapons sucl as conduclod onorgy voapons can bo usod lo carry
oul a dolonlion, las boon considorod in a domoslic Iav onforcomonl
conloxl, as sucl voapons aro usod by Iav onforcomonl officiaIs as parl of
a uso of forco conlinuum againsl various IovoIs of rosislanco (lloso IovoIs
can bo gonoraIIy calogorizod as cooporalivo, passivo rosislanco, aclivo or
dofonsivo rosislanco, assauIlivo, and griovous bodiIy larm or doall).
931

A parlicuIar focus las boon on llo uso of Tasors as a mollod of pain
compIianco againsl porsons vlo aro passivoIy or dofonsivoIy rosisling
arrosl.
932
Il las boon variousIy suggoslod llal sucl voapons slouId bo
roslriclod lo silualions vloro a porson posos an immodialo llroal of
doall or sorious injury and no Iossor oplions aro avaiIabIo
933
, llo porson
is causing bodiIy larm or posos a llroal of imminonl bodiIy larm
934
, or
al IovoIs abovo passivo rosislanco and considor banning lloir uso againsl
dofonsivo rosislanco.
935
Hovovor, il cannol bo slalod llal lloro is a broad
930 Soo U.N. B.sic Princip|cs, supr. nolo 810, al para. 9 (o.g. firoarms can bo usod againsl
somoono vlo is prosonling a dangor of an imminonl llroal of doall or sorious injury and
rosisling llo aullorily of Iav onforcomonl officiaIs).
931 Soo Br.i!ucc! Ccmmissicn cn Ccn!ucic! |ncrg Wc.pcn Usc, P|.sc | Rcpcri 97 (}un. 18, 2009)
(roforring lo llo Canadian NalionaI Uso of Iorco Iramovork), Soo aIso David A. Harris,
1.scr Usc. Rcpcri c| i|c Usc c| Icrcc Wcr|ing Grcup c| A||cg|.n Ccunir, IogaI Sludios
Rosoarcl Iapor Sorios, Working Iapor No. 2008-32 7 (2009) (for a simiIar uso of forco
conlinuum appIiod in llo Amorican conloxl).
932 Soo Harris, 1.scr Usc, supr. nolo 931, al 7 (Iassivo rosislanco is gonoraIIy invoIvos nol
cooporaling vill commands and laking aclion sucl as Iying dovn so llal lloy can bo
carriod avay, Tlo aullor vouId oxlond lo lonsing and bracing. Dofonsivo rosislanco is
doscribod as lvisling, puIIing, loIding onlo fixod objocls or fIooing).
933 Icss 1|.n Ici|.|. 1|c Usc c| Siun Wc.pcns in US I.u |n|crccmcni, 2.-,1$' 5-$,&-%$"*-%#
58 (2008).
934 Soo Br.i!ucc! Ccmmissicn, supr. nolo 931, Ixoculivo Summary, Iarl B, al para.2.
935 Soo Harris, 1.scr Usc, supra nolo 931, al 6.
consonsus llal llo uso of Tasors ovon in llo silualion of passivo rosislanco
is unIavfuI.
936

As a rosuIl, llo Commission concIudos llal llo IsraoIi forcos' uso
of Tasors lo carry oul llo dolonlion of civiIians is nol unIavfuI undor
inlornalionaI Iav, aIllougl il is llo subjocl of considorabIo conlrovorsy,
parlicuIarIy vlon sucl forco is usod againsl porsons passivoIy and
dofonsivoIy rosisling slalo officiaIs. A simiIar concIusion can aIso bo
roaclod vill rospocl lo ollor Ioss-IollaI voapons, sucl as painlbaII guns.
AnaIysis nI the Use nI Fnrce by IDF 5nIdiers
during the Takenver Operatinns nn May 31, 2010
232. As slalod abovo in llo gonoraI assossmonl of llo uso of forco,
llo maloriaI boforo llo Commission indicalos llal IollaI forco incIuding
firoarms vas usod by IHH aclivisls againsl llo IDI soIdiors allompling
lo slop llo M.ti M.rm.r. from broacling llo bIockado. In rosponso, llo
IDI soIdiors usod forco, ranging from llo uso of fIasl bang gronados lo
Iivo firo. Tloro vas Ioss rosislanco oncounlorod on llo ollor vossoIs and,
corrospondingIy, Ioss forco vas ompIoyod by llo IDI soIdiors.
233. Tlo Commission las oxaminod oacl inslanco of llo uso of
forco roporlod by llo IDI soIdiors in lloir loslimonios, pursuanl lo llo
Iimilalions discussod boIov. Nol onIy vas llo uso of forco undorlakon
by oacl soIdior assossod, bul llo spocific circumslancos undor vlicl
llo uso of forco occurrod and addilionaI avaiIabIo roIovanl informalion
concorning llo uso of forco vas aIso considorod.
234. Iacl uso of forco vas assossod according lo llo appIicabIo Iav -
inlornalionaI lumanilarian Iav. According lo llal IogaI rogimo, llo uso
of forco againsl civiIians vlo aro nol laking a dirocl parl in losliIilios
is govornod by Iav onforcomonl norms, vloroas dirocl parlicipanls can
bo largolod for sucl limo lloy aro laking parl in losliIilios. Tlus, llo
Commission oxaminod firsl vlollor forco vas usod againsl a civiIian
936 BuckIoy v. Haddock, 292 Iod. Appx. 791, 2008 U.S. App. IIXIS 19482 (Sop. 9, 2008 11ll
Cir.), Soo aIso Warron Ricloy, Pc|icc 1.scrs. |xccssitc Icrcc cr Ncccss.r 1cc| (May 28, 2009)
(for roforonco lo llo caso of }osso BuckIoy vloro llo US Supromo Courl docIinod lo loar
an appoaI of a Iavsuil of a molorisl againsl a poIico officor vlo lasod llo individuaI
for rofusing lo sland up and vaIk lo a palroI car) .t.i|.o|c .i vvv.csmonilor.com/
USA/}uslico/2009/0528/p02s05-usju.llmI`cmpid=addllis_omaiI&sms_ss=omaiI&al_
xl=4d1f8b1713c34d53,0. Soo aIso Soo Br.i!ucc! Ccmmissicn, supr. nolo 931, al 67-69 (vloro
llo Commissionor vas nol salisfiod llal llo normaI uso of conduclod onorgy voapons
vioIalod llo Unilod Nalions Convonlions againsl lorluro and ollor cruoI, inluman and
dograding lroalmonl or punislmonl in cuslomary inlornalionaI Iav).
laking a dirocl parl in losliIilios. Wloro il vas dolorminod llal llo
porson vas a dirocl parlicipanl, an assossmonl of llo uso of forco vas firsl
mado using llo appIicabIo ruIos of inlornalionaI lumanilarian Iav. If llo
porson againsl vlom forco vas usod vas dolorminod nol lo lavo lakon
a dirocl parl in losliIilios, llal uso of forco vas assossod soIoIy undor Iav
onforcomonl norms.
235. As las boon nolod, llo RuIos of Ingagomonl (ROI) issuod for llo
oporalion voro dovoIopod in anlicipalion llal llo porsons on board llo
IIoliIIa voro civiIians nol laking a dirocl parl in losliIilios. Tlo pIannod
uso of forco vas basod on llo samo principIos as lloso appIicabIo in a
Iav onforcomonl conloxl, vill llo ROI primariIy pormilling llo uso
forco in soIf-dofonso.
937
In a simiIar voin, llo IsraoIi Govornmonl las on
a numbor of occasions slalod llal llo forco by usod IsraoIi forcos vas in
soIf-dofonso.
938
Tloroforo, aII llo usos of forco voro anaIyzod pursuanl
lo Iav onforcomonl norms lo confirm llo dogroo lo vlicl llo lloy foII
villin llo scopo of lloso norms, incIuding soIf-dofonso or dofonso of
ollors. Tlo assossmonl aIso sorvod lo liglIigll llo dogroo lo vlicl llo
IsraoIi porsonnoI ondoavorod lo roslricl lloir aclions lo llo Iimils of llo
ROI vliIo boing confronlod vill significanl and unanlicipalod IovoIs of
vioIonco on board llo M.ti M.rm.r.. Tlis anaIysis indicalos llo claIIongos
llal can ariso vlon a soIf-dofonso basod ROI is appIiod lo accompIisl a
mission in llo conloxl of an armod confIicl.
Tlo concIusions of llis anaIysis aro prosonlod boIov. Tlo dolaiIod
loslimonios of llo soIdiors as voII as lloir anaIysis can bo found in an annox
lo llo roporl. Tlo Commission docidod, vliIo giving duo considoralion lo
arlicIo 539 A of llo MiIilary }uslico Iav 5715-1955, lo priviIogo llis annox
pursuanl lo ils aullorily undor ArlicIo 11 lo llo Govornmonls docision
of }uno 14, 2010, unIoss llo govornmonl docidos lo Iifl llis priviIogo.
Tlo Commission rocommonds llal llo Govornmonl viII oxamino llo
possibiIily of making llis annox pubIic pursuanl lo ils aullorily undor
Iav.
937 Hovovor, il slouId bo nolod llal llo uso of gradualod forco, sucl as uso of Ioss-IollaI
voapons, aro nol roquirod undor llo gonoraI framovork of inlornalionaI lumanilarian
Iav vlon using forco againsl combalanls or porsons laking a dirocl parl in losliIilios.
938 Soo Primc Minisicrs Opcn Dccr 1csiimcn, supr. nolo 82, Soo aIso |sr.c| Minisir c| Icrcign
A||.irs. G.z. I|cii||.. |xccrpis |rcm Prcss Ccn|crcncc uii| DM B.r.|, CcS As||cn.zi .n!
N.t.| Ccmm.n!cr M.rcm, vvv.mfa.gov.iI/MIA/Govornmonl/Spooclos+by+IsraoIi
+Ioadors/2010/Gaza_fIoliIIa_pross_conforonco_DM_Barak_CoS_Aslkonazi_NavaI_
Commandor_31-May-2010.llm (2010) (quoling NavaI Commandor Major IIiozor Marom:
Onco an imminonl dangor lo Iifo vas soon, in ordor lo dofond llomsoIvos llo soIdiors
lad lo oporalo lloir voapons. llo soIdiors Iivos voro in dangor, lloy lad lo uso Iivo
ammunilion lo dofond llomsoIvos).
236. Al llo oulsol, a gonoraI commonl is caIIod for rogarding llo
ovidonco boforo llo Commission al llo limo il formod ils concIusions,
and llo abiIily of llo Commission lo drav concIusions using llo looIs
al ils disposaI. Tlo anaIysis by llo Commission is basod primariIy on
llo documonlod loslimonios of ovor 40 soIdiors and commandors vlo
pIayod an aclivo roIo in llo lakoovor of llo M.ti M.rm.r., as voII of
llo commandors of llo lakoovor of llo ollor vossoIs in llo fIoliIIa,
and of ollor commandors and soIdiors vlo look parl in llo oporalion
on May 31, 2010. Tlo Commission furnislod vrillon roquosls lo IDI
aullorilios sovon limos in ordor lo doopon and oxpand llo inquirios llal
voro conduclod.
939
Iursuanl lo lloso roquosls for informalion, addilionaI
soIdiors providod slalomonls and soIdiors vlo lad aIroady dono so
addod lo lloir submissions. As a gonoraI ruIo, llo Commission found
llal llo soIdiors' accounls voro crodibIo and lruslvorlly. Tlo soIdiors
gavo dolaiIod informalion, usod naluraI Ianguago, and did nol appoar lo
lavo coordinalod lloir vorsions. Tlo soIdiors accounls voro oxaminod
molicuIousIy, cross-roforoncod againsl oacl ollor, and vorifiod, as far as
possibIo, againsl addilionaI maloriaIs submillod lo llo Commission. Tlis
incIudod modicaI documonls rogarding llo injurios lo llo soIdiors, IDI
inquirios rogarding llo amounl and lypos of ammunilion (painlbaIIs,
boanbag rounds, fIasl bang gronados, and Iivo ammunilion) firod during
llo various ovonls and a roviov of llo magnolic modia furnislod lo llo
Commission.
237. Tlo Commission's abiIily lo conslrucl a compIolo picluro of llo
incidonls in vlicl forco vas ompIoyod by IDI soIdiors is Iimilod for a
numbor of roasons. Iirsi, llo incidonls on May 31, 2010, invoIvod many
parlicipanls, look pIaco al nigll in sovoraI difforonl Iocalions and on a
numbor of docks, and, according lo llo soIdiors loslimonios, llo vioIonco
surprisod llom vill rospocl lo ils inlonsily. By ils vory naluro, llo
Commission's abiIily lo "dissocl" llo oporalion inlo ils various compononls
and, sovoraI monlls Ialor, rolroaclivoIy roconslrucl oacl and ovory
incidonl llal look pIaco during llo oporalion is and cannol bo porfocl. Il
slouId aIso bo nolod llal llo soIdiors slalomonls voro onIy documonlod
in vriling and submillod lo llo Commission. Tlo soIdiors voro nol pul
on nolico llal lloir riglls voro impIicalod vlon giving lloir slalomonls
(vlicl is llo ordinary procoodings in a cuslodiaI inlorrogalion or judiciaI
procooding) and lloy did nol undorgo cross-oxaminalion.
939 Ior dolaiIs of llo Commission's roquosls for informalion lo llo IDI, soo supr. para. 9, in
llis roporl.
Scccn!, somo of llo fIoliIIa parlicipanls voro inlorrogalod by llo
IsraoIi IoIico
940
and by MiIilary InloIIigonco,
941
and vliIo lloir vorsions do
indood slod somo Iigll on vlal lranspirod on board llo M.ti M.rm.r.,
novorlloIoss, il vas nol possibIo lo conducl an organizod oxaminalion of
llo IDI soIdiors' uso of forco during llo lakoovor ovonls in roIianco on
lloso accounls. Il slouId aIso bo nolod llal ovon llo MiIilary InloIIigonco
invosligalors slalod llal llo inlorrogalions llomsoIvos voro conduclod
undor condilions llal voro nol suilod lo sucl an inquiry.
942
In addilion,
and as slalod abovo, llo Commission's roquosls lo llo caplain of llo M.ti
M.rm.r. and llo clairman of llo IHH, and ils gonoraI invilalion lo llo
ollor fIoliIIa parlicipanls, lo loslify boforo llo Commission rocoivod no
rosponsos - oxcopl from lvo IsraoIi cilizons vlo did loslify.
943
Undor
lloso circumslancos, llo anaIysis vas basod primariIy on loslimonios and
maloriaIs llal voro submillod by IsraoIi sourcos.
1|ir!, from llo limo llo ovonls occurrod lo llo inilialion of llo
various invosligalions, llo sconos in vlicl llo ovonls look pIaco voro
nol kopl sloriIo. Somo of llo bodios of lloso vlo voro kiIIod voro
movod from llo pIacos vloro lloy lad boon slol, llo buIIols and sloIIs
found on llo M.ti M.rm.r. voro nol coIIoclod in an organizod mannor,
llo various assauIl voapons usod by llo IHH aclivisls (knivos, cIubs,
sIingslols, olc.) voro gallorod in ono Iocalion and nol documonlod as
lloy voro approlondod, olc. Tlo Commission viII addross llis issuo as
parl of llo discussion of arlicIo 5 of llo Govornmonl's docision of }uno
14, 2010, vlicl viII bo prosonlod al a Ialor limo, and vlicl roIalos lo llo
mollod of oxamining and invosligaling llo compIainls llal lavo boon
raisod rogarding vioIalions of llo Iavs of var, boll in gonoraI and vill
rospocl lo llo ovonls of May 31, 2010, in parlicuIar.
Icuri|, llo IsraoIi aullorilios do nol lavo accoss lo aulopsy roporls,
bul rallor onIy lo llo roporls from an oxlornaI oxaminalion of llo bodios
of lloso vlo voro kiIIod. As slalod abovo, llo roason for llis sloms from
940 OvoraII, 42 of llo fIoliIIa parlicipanls voro quoslionod by llo IsraoIi poIico. Tloy voro
aII givon nolico of lloir rigll lo an allornoy and llo quoslions voro lransIalod lo llom
(oxcIuding lloso vlo voro cilizons of IsraoI). Tlo majorily of llo parlicipanls rofusod lo
sign llo slalomonls, a Iargo porlion rofusod lo ansvor quoslions, and oul of lloso vlo
gavo a slalomonl, lloir vorsions voro sparso and did nov aIIov for a compIolo picluro lo
bo roconslruclod.
941 OvoraII, 86 of llo fIoliIIa parlicipanls voro quoslionod by llo MiIilary InloIIigonco. Irom
rovioving llo roporl of llal quoslioning, il appoars llal a roIalivoIy smaII porlion of llo
fIoliIIa parlicipanls roforrod in lloir quoslioning lo llo uso of forco by llo IDI soIdiors.
Mosl of lloso fIoliIIa parlicipanls did nol spocificaIIy rofor lo sucl ovonls vlicl vouId
onabIo al IogaI anaIysis of llo uso of forco.
942 Soo arlicIo 03/0610A2415004 Mi|ii.r |nic||igcncc Rcpcris, supr. nolo 491, al 6.
943 Soo supr. para. 9 in llis roporl.
llo Turkisl govornmonl's roquosl, immodialoIy aflor llo ovonl, llal llo
IsraoIi govornmonl vouId nol porform aulopsios on llo bodios of llo
docoasod.
944
As a rosuIl, llo gunslol vounds on llo bodios cannol bo
Iinkod lo llo voapons usod by llo IDI soIdiors and aulopsios voro nol
avaiIabIo lo assisl in lrying lo dolormino vlo slol llo docoasod.
Ii|i|, llo Commission rocoivod magnolic modia of various lypos llal
lad boon coIIoclod from llo M.ti M.rm.r. upon concIusion of llo vossoI's
lakoovor. As slalod, llo magnolic modia incIudos vidoos and plolograpls
from digilaI camoras and vidoo rocordors usod by llo fIoliIIa parlicipanls,
vidoos from llo socurily camoras aboard llo M.ti M.rm.r., vidoos, and
rocordings from llo IDIs rocording dovicos. Tlis maloriaI conslilulos
objoclivo and roIiabIo ovidonco. On sovoraI occasions, llo Commission
askod llo IDI vlollor aII of llo modia llal vas soizod lad boon furnislod
lo llo Commission. On Docombor 23, 2010, llo Commission rocoivod llo
rosponso llal aII of llo magnolic modia llal lad boon coIIoclod on llo M.ti
M.rm.r. and vlicl vas loclnicaIIy sound lad boon oxaminod by llo IDI,
and llal llo roIovanl fiIos lad boon copiod and givon lo llo Commission,
945

vill llo oxcoplion of ono vidoo in vlicl IHH aclivisls aro soon boaling
and vidoolaping llo soIdiors vlo lad boon abduclod insido llo slip. Tlal
vidoo vas providod vill llo IDI rosponso. Tlal rosponso slalod llal llo
oxaminalion of llo roIovanl sourcos indicalos llal, ollor llan llis vidoo,
aII of llo maloriaI llal vas found on llo dovicos vlicl voro confiscalod
from llo fIoliIIa parlicipanls las boon furnislod lo llo Commission."
946

On Docombor 30, 2010, lovovor, llo Commission rocoivod anollor fiIo
of vidoos from llo IDI aullorilios, conlaining anollor copy of said vidoo,
as voII as fivo addilionaI vidoos in vlicl IHH aclivisls aro soon boaling
and vidoolaping llo IDI soIdiors vlo voro abduclod insido llo slip, and
vlicl voro nol proviousIy in llo Commission's possossion.
Tlal said, sovoraI lundrods of lours of vidoo ovidonco vas roviovod.
UnforlunaloIy, llo vasl majorily of il vas nol loIpfuI in rosoIving llo
incidonls invoIving llo uso forco and nol aII of llo ovonls rocordod by llo
magnolic modia can bo malclod vill llo soIdiors loslimonios. A numbor
of llo ovonls documonlod in llo magnolic modia couId malcl moro llan
ono of llo ovonls doscribod by llo soIdiors, vloroas, rogarding ollor
944 Soo llo Iollor from llo Turkisl ambassador lo llo Minislor of Ioroign Affairs (2 }uno, 2020)
in a bindor from Rafi Barack, markod as oxlibil 169 in llo Commission's oxlibils.
945 Soo IDI rosponso for addilionaI informalion of llo Commission from Doc. 8, 2010, oxlibil
158 in llo Commission's oxlibils. According lo llo IDI's rosponso, llo losl of "roIovancy"
vas dofinod as any connoclion diroclIy or indiroclIy lo llo ovonl, in conlrasl lo picluros or
privalo mossagos llal voro nol connoclod lo llo ovonl.
946 |!., al 2, arl. 6.
ovonls, il is nol cIoar vlollor lloy aro in facl doscribod in llo soIdiors
loslimonios. Tlus, for oxampIo, aflor anaIyzing ono of llo vidoos in vlicl
a soIdior is soon firing al an IHH aclivisl armod vill an iron bar vlo
vas allacking lim, llo Commission vas unabIo lo roIalo llis incidonl lo
a spocific ovonl doscribod in llo soIdiors loslimonios (llis incidonl couId
possibIy corrospond lo a numbor of difforonl ovonls llal voro doscribod).
238. Tlo Commission look upon ilsoIf a compIicalod projocl, vlicl
lad obvious Iimilalions. Il slouId bo slalod loro llal llis anaIysis is
parlicuIarIy compIox vlon il is conduclod rolroaclivoIy, undor llo
fIuorosconl Iiglls of llo offico and aflor llo fog of var las dissipalod. Il
is cIoar lo llo Commission llal, ospociaIIy vill rospocl lo llo lakoovor
of llo M.ti M.rm.r., llo IDI soIdiors voro roquirod lo mako difficuIl,
spIil-socond docisions rogarding llo uso of forco, undor condilions of
uncorlainly, surpriso, prossuro, and in darknoss, vill llo porcoplion of
a roaI dangor lo lloir Iivos and vill onIy parliaI informalion avaiIabIo lo
llom. Iurllor, in llis silualion, lloy voro aIso avaro of llo facl llal somo
of llo IHH aclivisls on board llo M.ti M.rm.r. voro using firoarms.
Tloso faclors voro lakon inlo accounl vlon anaIyzing llo forco usod
during llo lakoovor ovonl. Iurllor, in a Iimilod numbor of casos, lloro
vas insufficionl informalion lo bo abIo lo roacl a concIusion rogarding
llo circumslancos surrounding llo uso of forco.
Al llo samo limo, lo llo oxlonl possibIo, a propor assossmonl of
llo uso of forco roquiros molicuIous anaIysis. To a corlain oxlonl, llo
Commission boIiovos llal il vas abIo lo anaIyzo llo soIdiors loslimonios
and drav concIusions rogarding llo majorily of llo ovonls doscribod
by llo soIdiors. Wlon llo Commission couId nol roacl a concIusion
rogarding llo uso of forco vill llo looIs al ils disposaI, llis is slalod.
239. Aflor an in-dopll anaIysis of aII llo maloriaI in ils possossion, llo
Commission drov llo foIIoving concIusions rogarding llo uso of forco:
(a) Tlo Commission oxaminod 133 incidonls in vlicl forco vas
usod (incIuding ovonls vlon Iivo firo vas ompIoyod, firing
Ioss-IollaI voapons, slooling as a dolorronl, llroaloning vill a
voapon, using a Tasor, and using plysicaI forco undor corlain
circumslancos), vlicl voro doscribod by ovor 40 soIdiors vlo
fasl-ropod onlo llo M.ti M.rm.r. from llo loIicoplors or vlo
loslifiod aboul llo lakoovor aclions from llo Morona spoodboals.
Tlis numbor aIso incIudos a fov incidonls llal voro dopiclod on
llo avaiIabIo roIovanl magnolic modia and llal did nol corrospond
lo llo soIdiors' loslimonios.
(b) Tlo Iargo numbor of usos of forco is rofIoclivo of llo docision lo
Iook al aII usos of forco by IDI soIdiors, llo Iargo numbor of IHH
aclivisls vlo armod llomsoIvos lo rosisl llo capluro of llo slips
allompling lo broacl llo bIockado, and llo scopo and scaIo of llo
vioIonco offorod by lloso aclivisls. Il slouId aIso bo nolod llal
llo majorily of llo usos of forco invoIvod varning or dolorring
firo and Ioss-IollaI voapons. Of llo lolaI numbor of usos of forco
roporlod by llo soIdiors, 16 incidonls of lilling llo conlor of body
("conlor of mass") vill rounds of Iivo firo voro roporlod.
(c) OvoraII, llo IDI porsonnoI aclod profossionaIIy in llo faco of
oxlonsivo and unanlicipalod vioIonco. Tlis incIudod conlinuing lo
svilcl back and forll bolvoon Ioss-IollaI and IollaI voapons in
ordor lo addross llo naluro of llo vioIonco diroclod al llom.
(d) Tlo Commission found llal 127 usos of forco invosligalod appoarod
lo bo in conformily vill inlornalionaI Iav. In an addilionaI six
casos, llo Commission las concIudod llal il las insufficionl
informalion lo bo abIo lo mako a dolorminalion rogarding llo uso
of forco. Tlroo oul of lloso six casos invoIvod llo uso of Iivo firo
and llroo casos invoIvod plysicaI forco, lvo incidonls of kicking
and ono slriko vill llo bull of a painlbaII gun.
(o) In fivo of llo 127 casos, forco appoarod lo bo usod againsl porsons
laking a dirocl parl in losliIilios, lovovor, lloro vas insufficionl
ovidonco lo concIudo llal llo forco usod vas in accordanco vill
Iav onforcomonl norms. In anollor fivo casos, llo Commission
concIudod llal forco appoarod lo bo usod in accordanco vill Iav
onforcomonl norms, bul in lvo casos il vas unabIo lo dolormino
vlollor llo porson againsl vlom forco vas usod vas a dirocl
parlicipanl in losliIilios and in llroo casos, il vas dolorminod llal
forco vas usod againsl civiIians vlo voro nol considorod dirocl
parlicipanls.
Impact nI the PIanning and Organizatinn nI the
Operatinn nn the Use nI Fnrce
240. In boll silualions of armod confIicl and Iav onforcomonl, an
assossmonl of vlollor lloro vas approprialo uso of forco by Slalo
armod forcos slouId incIudo Iooking broadIy al aII of llo surrounding
circumslancos, incIuding llo pIanning and conlroI of llo oporalion.
947

Iocusing on pIanning and organizalion is roIovanl nol onIy lo llo
quoslion of ovoraII IiabiIily, bul il aIso rofIocls llo roaIily llal llo
aclions of individuaI soIdiors aro in many casos diroclIy impaclod by
llo informalion lloy aro providod, llo lraining lloy rocoivo, and llo
oporalionaI Iimilalions rosuIling from pIanning docisions mado liglor
up llo clain of command. Tlo anaIysis viII nov lurn lo somo of lloso
issuos. In rovioving llo pIanning and proparalion for llo oporalion, llo
Commission is parlicuIarIy mindfuI of llo dangor of Iooking al a silualion
vill llo bonofil of lindsigll. Iffoclivo oporalionaI pIanning roquiros
considorabIo oxporionco and llo nood lo mako profossionaI judgmonl
caIIs basod on llo avaiIabIo informalion. In addilion, a parlicuIar courso
of aclion may nol bo foasibIo for a vido rango of roasons.
241. An oporalion dosignod lo inlorcopl a fIoliIIa of six uncooporalivo
slips on llo ligl soas is compIox. Air and navaI forcos lad lo bo offoclivoIy
coordinalod. Iurllor, llo onliro miIilary oporalion, boll during llo
oporalion and in llo aflormall of llo incidonl, lad lo bo coordinalod
vill llo limoIy and profossionaI provision of modicaI assislanco and
ovacualion of boll IDI and IHH injurod porsons.
242. Tlo pIacomonl of sonior commandors on scono, incIuding llo
Commandor of llo Navy, domonslralod llo soriousnoss vill vlicl
llis incidonl vas viovod by llo IsraoIi miIilary. Il aIso onlancod llo
silualionaI avaronoss of llo clain of command in ordor lo loIp onsuro
limoIy and offoclivo docision making as llo incidonl unfoIdod. Tlo uso
of llo spociaI unil "Masada" and ollor Iav onforcomonl unils, and llo
coordinalion across Govornmonl in ordor lo landIo llo Iargo numbor of
passongors, rofIoclod llo roaIizalion llal posl-inlorcoplion lroalmonl of
lloso polonliaIIy uncooporalivo civiIians vas bosl Iofl lo forcos spociaIIy
lrainod for lloso lypos of oporalions.
947 Soo 1|c McC.nn caso, supra nolo 809, al para. 150 (In kooping vill llo imporlanco of
llis provision |llo rigll lo Iifoj in a domocralic socioly, llo Courl musl, in making ils
assossmonl, subjocl doprivalions of Iifo lo llo mosl carofuI scruliny, parlicuIarIy vloro
doIiboralo IollaI forco is usod, laking inlo considoralion nol onIy llo aclions of llo agonls
of llo Slalo vlo acluaIIy adminislor llo forco bul aIso aII llo surrounding circumslancos
incIuding sucl mallors as llo pIanning and conlroI of llo aclions undor oxaminalion).
Tlo docision lo uso llo navaI SpociaI Iorcos unil, Slayolol 13, vas
in accordanco vill llo normaI inlornalionaI praclico for navaI oporalions
ovon oulsido llo conloxl of armod confIicl, parlicuIarIy in Iigll of llo
nood for spociaIizod lraining lo board a moving vossoI and for fasl-roping
onlo llo dock of a slip al nigll. Iurllor, llo lraining and oxorcisos lloy
undorvonl lo famiIiarizo llomsoIvos vill Ioss-IollaI voapons and llo
gradualod uso of forco as voII as llo "monlaI proparalions" llal lloy
undorvonl onsurod llal lloy voro voII proparod for llo mission of
inlorcopling vossoIs vill a Iargo numbor of civiIians on board.
948

243. Irom llo maloriaIs boforo llo Commission, il appoars llal llo
IsraoIi aullorilios did nol lavo a forovarning of llo vioIonl rocoplion
pIannod by llo IHH. Tlo inabiIily lo idonlify IHH inlonlions lad a dirocl
impacl on llo pIanning and impIomonlalion of llo oporalion. Hovovor,
llo Iack of approcialion of llo llroal vas nol oxcIusivoIy llo rosuIl of
incompIolo inloIIigonco galloring. Tlrougloul llo pIanning procoss,
vlollor Iookod al from a poIicy, oporalionaI, or IogaI porspoclivo, llo
sconario of an organizod forco armod vill IollaI voapons aclivoIy
rosisling llo boarding allompl appoars nol lo lavo boon considorod. In
parl, llis assumplion appoars lo lavo rosuIlod from anlicipalion llal llo
parlicipanls in llo fIoliIIa voro aII poacofuI civiIians as vas llo caso vill
provious fIoliIIas on llo samo roulo.
WliIo a corlain IovoI of vioIonco vas anlicipalod during llo
slralogic discussions loId prior lo llo oporalion, and llo possibiIily llal
lloro migll bo firoarms prosonl vas monlionod in lloso discussions,
949

govornmonl vilnossos appoaring boforo llo Commission lad difficuIly
idonlifying oxaclIy vlal llal moanl in a praclicaI sonso al llo limo.
950
Tlo
pIannors of llo oporalion soom nol lo lavo boIiovod llal llo uso of forco
vouId bo nocossary, oxcopl porlaps in isoIalod casos of soIdiors acling in
soIf-dofonso. Wlollor drivon by a Iack of informalion, confidonco in llo
abiIily of llo SpociaI Iorcos and ollor IsraoIi unils invoIvod lo landIo any
unanlicipalod silualion, or a sonso of roulino llal may lavo dovoIopod
rogarding lloso lypos of oporalions (aIllougl il vas cIoarIy undorslood
llal llis fIoliIIa vas difforonl and prosonlod nov claIIongos), llo pIanning
appoarod lo ond vill llo assumplion llal any vioIonco vouId occur al
948 |!., al para. 183 (vloro llo courl rojoclod aIIogalion llal llo cloico of porsonnoI spociaIIy
lrainod lo combal lorrorism moan llal il vas inlondod lo kiII llo lorrorisls).
949 Dc|cnsc Minisicrs Opcn Dccr 1csiimcn, supr. nolo 70, al 33-34, C|ic| c| Si.||s Opcn Dccr
1csiimcn c| 24.10.2010, supr. nolo 554, al 33, 38.
950 Opcn Dccr 1csiimcn c| i|c Dirccicr Gcncr.| c| i|c Minisir c| Icrcign A||.irs, supr. nolo
430, al 8, C|ic| c| Si.||s Opcn Dccr 1csiimcn c| 24.10.2010, supr. nolo 554, al 10, Dc|cnsc
Minisicrs Opcn Dccr 1csiimcn, supr. nolo 70, al 30-33.
llo oxlromo Iovor ond of llo confIicl spoclrum. Tlis lad a dirocl impacl
on oporalionaI laclics, llo RuIos of Ingagomonl, and lraining boforo llo
oporalion.
244. In any ovonl, from llo soIdiors' loslimonios il is ovidonl llal llo
possibiIily of a vioIonl confronlalion, on ono IovoI or anollor, did nol fiIlor
dovn during llo pIanning procoss lo llo laclicaI IovoI.
951
Tlo soIdiors
aImosl univorsaIIy indicalod llal lloy oxpoclod Iov IovoIs of vioIonco,
porlaps invoIving somo pusling and Iimilod plysicaI conlacl.
952
As a
rosuIl, llo soIdiors voro surprisod lo find llomsoIvos in a silualion llal
lloy uIlimaloIy viovod as combal.
953

245. Hovovor, in llis conloxl lvo addilionaI faclors musl bo
omplasizod: ono, llo prosonco of Iargo numbors of civiIians on llo
vossoIs Iimilod llo oporalionaI oplions. Tloro vas an undorslandabIo
and slrongIy loId viov across Govornmonl llal a uso of forco againsl
llo slips couId nol bo juslifiod on moraI grounds. Socond, llo lraining
and proparalion of llo soIdiors Ioading up lo llo oporalion vas vory
llorougl, vill a parlicuIar omplasis on llo uso of Ioss-IollaI voapons.
Ior llo soIdiors, llo dofauIl posilion vas lo uso Ioss-IollaI voapons unliI
an opposing llroal forcod llo uso of llo IollaI oplions. Tlis proparalion
provod offoclivo during llo lakoovor of llo ollor 5 fIoliIIa vossoIs vloro
llo IovoIs of vioIonco gonoraIIy mol llo pIannors' oxpoclalion.
246. In facl, llo silualion prosonlod in llis caso is oxaclIy llo opposilo
of vlal occurrod in llo McC.nn caso from llo Iuropoan Courl of Human
Riglls, vloro Brilisl aullorilios voro fauIlod for making assumplions llal
Iod lo a sonso of incroasod risk (i.o., nol considoring llal lloir inloIIigonco
assossmonls llal a car bombing vas imminonl migll bo vrong) and for
ompIoying soIdiors vlo voro lrainod lo aulomalicaIIy uso IollaI forco.
954

In llo prosonl caso, llo risk vas undorapprocialod and llo Iimilalions
in llo ROI vill rospocl lo llo uso of Ioss-IollaI voapons (rango, aroas of
llo body lo bo largolod, olc), vliIo pul in pIaco lo Iimil injury lo civiIians,
provod vory roslriclivo considoring llo silualion facod by llo soIdiors
llal fasl-ropod lo llo M.ti M.rm.r.. In llis rospocl, llo pIanning procoss
las lo accounl for possibiIilios llal soom Ioss IikoIy, and incIudo lloso
951 1|c |i|.n! Rcpcri, supr. nolo 402, al 62-63.
952 Soo llo loslimony of soIdior no. 1, |nuir |xp.nsicn c| 20.9.2010, supr. nolo 451, al 1,
Toslimony of soIdior no. 2, |!., al 1, Toslimony of soIdior no. 4, |!., al 1, Toslimony of
soIdior no. 6, |!., al 1, Toslimony of soIdior no. 8, |!., al 1, Toslimony of soIdior no. 9, |!., al
1, Toslimony of soIdior no. 10, |!., al 1, Toslimony of soIdior no. 15, |!., al 1.
953 Soo llo loslimony of soIdior no.2, |!., al 2, Toslimony of soIdior no. 9, |!., al 1, Toslimony
of soIdior no. 10, |!., al 1, Toslimony of soIdior no. 15, |!., al 1.
954 1|c McC.nn caso, supra nolo 809, al para. 210-213.
sconarios in llo proparalion of llo soIdiors boforo llo oporalion. WliIo
commandors rigllIy slouId bo abIo lo roIy on llo knovn capabiIilios
of porsonnoI undor lloir command, il is ovidonl llal llo soIdiors voro
pIacod in a silualion lloy voro nol compIoloIy proparod for and lad nol
anlicipalod. Tlo anlicipalion of and pIanning for vorsl caso sconarios
couId lavo bollor proparod llo soIdiors for llo silualion lo vlicl lloy
voro oxposod. In proparing oxcIusivoIy for Ioss vioIonl sconarios, llo
dangor from a IogaI porspoclivo is llal llo soIdiors migll ovorroacl vlon
confronlod vill sucl unanlicipalod llroals. Hovovor, and llis slouId
bo omplasizod, Iooking al llo oporalion as a vloIo, llal appoars nol lo
lavo lapponod, as llo soIdiors aclod conlinuaIIy lo dislinguisl llo lypos
of llroal posod in difforonl silualions, and lloy ovon svilclod back and
forll bolvoon IollaI and Ioss-IollaI voapons lo addross lloso llroals.
Tlis occurrod aIso aflor il lad bocomo cIoar llal llo IHH aclivisls voro
using firoarms.
247. Quoslions rogarding llo adoquacy of llo pIanning aIso ariso in
rovioving llo navaI command, vlicl idonlifiod a fov oplions for llo
gradualod uso of forco lo slop llo slips: llo uso of valor losos and
maIodoranls. As oulIinod abovo, mosl of lloso mollods voro uIlimaloIy
rojoclod by llo miIilary ilsoIf as impraclicabIo. In llal rospocl, il is nol
cIoar vly llo navaI command vas nol draflod or amondod lo rofIocl
llo acluaI Iimilod oplions llal voro avaiIabIo lo board llo slips. A
cIoaror acknovIodgomonl of lloso oporalionaI Iimilalions during llo
proparalion of llo navaI command migll lavo forcod considoralion of
ollor aIlornalivos or difforonl coursos of aclion.
. Undor llo circumslancos, al llo limo il bocamo ovidonl llal
boarding from llo soa vas going lo bo opposod, il vas docidod lo ordor llo
soIdiors lo fasl-ropo onlo llo roof and soizo llo bridgo. As il lurnod oul,
llis pIacod llo soIdiors al an incroasod IovoI of risk. Wlon llo rosislanco
lo llo iniliaI boarding from llo Morona spoodboals occurrod, or vlon llo
ropo vas liod off vlon Iovorod from llo firsl loIicoplor, anollor possibIo
approacl migll lavo boon lo lomporariIy villdrav in ordor considor
ollor oplions, incIuding varning llo caplain of llo M.ti M.rm.r. and llo
IHH parlicipanls llal doadIy forco vouId bo usod if vioIonl opposilion
porsislod. As las boon nolod, llo loclnicaI moans and oporalionaI
doclrino for slopping vossoIs on llo ligl soas, and parlicuIarIy ono llo
sizo of llo M.ti M.rm.r., aro quilo Iimilod. Tlo Iargo numbor of civiIian
passongors on board and llo polonliaI for coIIaloraI damago furllor
incroasod llo claIIongo. Hovovor, cIoar varnings and llo conlroIIod and
isoIalod uso of forco may lavo loIpod avoid a vidor and moro vioIonl
confronlalion sucl as llo ono llal occurrod. In llis rogard, llo varnings
issuod lo llo Gaza fIoliIIa slouId bo roviovod lo dolormino vlollor lloy
slouId moro diroclIy lavo indicalod vlal aclion vouId bo lakon by IsraoIi
aullorilios if rosislanco voro lo conlinuo. Having an aIlornalo pIan vlon
cIoar rosislanco vas firsl slovn (i.o. vlon il bocamo ovidonl llal llo
IHH aclivisls voro in possossion of voapons and vioIonlIy opposod llo
boarding from llo Morona spoodboals) migll lavo avoidod llo posilion
of laving lo conlinuo lo Iand soIdiors ono by ono inlo llo midsl of llo
vailing IHH aclivisls.
Hovovor, llo issuanco of varnings vouId nol nocossariIy lavo
boon foasibIo or offoclivo. Ior oxampIo, varning slols inlondod lo slop a
slip may lavo Iimilod offocl, doponding on a numbor of faclors, incIuding
llo voallor, llo slalo of llo soa, and llo avaiIabIo voapons. Iurllor,
varning slols can onIy bo usod vlon ollor slips or porsonnoI viII nol bo
ondangorod. Tlo prosonco of a Iargo numbor of vossoIs laking parl in llis
incidonl is lloroforo a significanl compIicaling faclor.
955
248. WliIo llo Commission las commonlod on llo pIanning and
organizalion of llo mission, llis criliquo slouId nol bo inlorprolod lo
moan llal llo acluaI pIan as dovoIopod by llo IsraoIi miIilary or llo
organizalion of llo mission Iod lo a syslomic misappIicalion of forco by
llo soIdiors invoIvod or a broacl of inlornalionaI Iav.
955 Soo AIIon, Iimiis cn i|c Usc c| Icrcc, supr. nolo 337, al 87 (indicaling vlon doscribing
llo Unilod Slalos Coasl Guard approacl lo using varning slols and disabIing firo in a
Iav onforcomonl sconario: |vjarning slols aro onIy usod aflor ollor signaIing mollods
lavo boon lriod villoul succoss. Warning slols aro nol usod againsl aircrafl or undor
circumslancos vloro lloir uso migll ondangor any porson or proporly. GonoraIIy,
varning slols aro nol usod unIoss llo onforcomonl unils lavo llo capabiIily lo doIivor
disabIing firo if llo varning slols aro ignorod. DisabIing firo is llo firing of ordnanco
al a vossoI vill llo inlonl lo disabIo il, vill minimum injury lo porsonnoI or damago lo
llo vossoI. Undor llo CGUII |Coasl Guard Uso of Iorco IoIicyj, disabIing firo is lo bo
disconlinuod vlon llo vossoI slops, is disabIod, onlors llo lorriloriaI soa of anollor Slalo,
or llo silualion clangos in a mannor llal inlroducos subslanliaI risk lo lloso aboard llo
noncompIianl vossoI).
An AHernative Perspective: AnaIysis nI the Opening
Actinns Under Law EnInrcment Nnrms
249. Il vouId bo vorllvliIo lo oxamino llo infIuonco of llo laclics
llal voro appIiod by llo IDI al llo oponing slagos of llo capluro of llo
Marmara, on llo compalibiIily of llo oporalion vill llo roquiromonls of
nocossily and proporlionaIily, according lo llo Iav Inforcomonl norms.
Tlo issuo lo bo discussod is vlollor il vouId bo possibIo lo arguo llal llo
iniliaI cloico of llo IDI lo appIy unaggrossivo slops in ordor lo capluro
llo slip (duo lo Iack of informalion concorning llo anlicipalod inlonsily
of llo rosislanco lo llo capluro) acluaIIy Iod lo a moro sovoro damago llan
llis vlicl vouId lavo occurrod, if moro aggrossivo moasuros, lo somo
oxlonl, lad boon lakon in llo firsl pIaco.
250. As doscribod abovo, llo iniliaI slop of llo oporalion incIudod an
allompl lo cIimb on lo llo slip from ono of llo Morona, villoul using
incroasod forco. In llo courso of llis iniliaI slago, llo IDI usod onIy
"sofl" moasuros in ordor lo capluro llo slip, in rosponso lo llo vioIonco
domonslralod by llo IHH aclivisls. Tlo forcos on llo boal proforrod lo
lomporariIy rolroal, insload of using IollaI voapon or sovoro non-IollaI
onos. In addilion, llo soIdiors rappoIIod from llo loIicoplor aIllougl
onsuro faciIilalod by vioIonl moans llo accoss of llo soIdiors lo llo slip.
Al llis slago onIy "fIasl bang" gronados, vlicl did nol poso any llroal lo
llo parlicipanls' Iivos, voro usod.
OnIy subsoquonlIy lo llo facl llal llo IHH group sovoroIy and
cruoIIy allackod llo firsl soIdior vlo lad cIimbod dovn lo llo slip,
and by llis oscaIalod llo confronlalion, llo soIdiors found llomsoIvos
compoIIod lo uso a liglor dogroo of forco.
251. Tlo iniliaI laclics vlicl lavo boon impIomonlod by llo IDI
posod onIy a minimaI llroal upon llo parlicipanls, vliIo lloy imposod
an incroasod risk upon llo IsraoIi soIdiors, in parlicuIar rogarding lo
lloso vlo parlicipalod in llo fasl-ropo manouvor. As aforomonlionod, il
slouId bo omplasizod llal llo IDI soIdiors lavo iniliaIIy usod onIy non-
IollaI voapons in a vory modoralo modo, nolvillslanding llo subslanliaI
vioIonco appIiod by llo fIoliIIa parlicipanls. Tloso acls oplimaIIy fuIfiIIod
by llomsoIvos llo roquiromonls of nocossily and proporlionaIily according
lo llo inlornalionaI luman riglls Iav. As mucl as llo nocossily losl is
concornod, llo parlicipanls did nol suffor any damago during llo oponing
slago al slako and lloroforo lloro is no nood lo oxamino vlollor any ollor
laclics vlicl couId lavo causod a Iossor damago lad boon avaiIabIo al
llis limo. As mucl as llo nocossily losl (in ils narrov sonso) is concornod,
givon llo facl llal no damago las boon causod villin llo oponing slago
of llo oporalion, llo baIancing bolvoon llo oporalionaI advanlago and
llo damago boon infIiclod Ioads nocossariIy lo llo concIusion llal llo
proporlionaIily roquiromonl las boon fuIfiIIod al llis slago.
Indood, llo oscaIalion slarlod onIy aflor llo aforomonlionod iniliaI
slop of llo oporalion. Ono may conlond llal llo oscaIalion couId lavo
boon provonlod if a moro vigorous laclic vouId lavo boon impIomonlod
againsl llo parlicipanls in llo fIoliIIa (for oxampIo, by croaling a "sloriIo
zono", using moans Iiko skunk bombs. Il slouId lloroforo bo oxaminod
vlollor llo IDI vas undor any obIigalion according lo llo inlornalionaI
Iav lo uso any moro aggrossivo iniliaI slops llan lloso boon appIiod, in
ordor lo provonl llo oscaIalion vlicl subsoquonlIy occurrod, Ioading lo
llo nocossily of using IollaI voapons.
252. Il sooms llal a nogalivo ansvor slouId bo givon lo llo
aforomonlionod quoslion. Al firsl, il is onliro doublfuI vlollor llo
impIomonlalion of moro aggrossivo laclics al llo boginning of llo
oporalion couId indood lavo Iosson llo damago causod lo llo parlicipanls
of llo fIoliIIa, givon llo facl llal llo IHH parlicipanls voro corlainIy
dolorminod lo gonoralo a vioIonl confronlalion. Al llo samo limo, lloro is
a roasonabIo basis lo assumo llal moro aggrossivo slops couId lavo Iosson
llo risk and llo injurios among llo IDI soIdiors (an aspocl vlicl doos nol
lavo any impIicalions in roIalion lo llo inlornalionaI Iav obIigalions bul
rallor onIy concorning llo IsraoIi inlornaI conloxl).
253. SocondIy, llo roquiromonls of nocossily and proporlionaIily
slouId bo considorod according lo llo informalion vlicl vas avaiIabIo,
or slouId lavo boon avaiIabIo, lo llo oporalionaI forcos al llo limo of
llo oporalion. WliIo impIomonling lloso roquiromonls, spociaI voigll
slouId bo givon lo llo subjoclivo aspocl (llo good faill issuo) and lo llo ox
anlo poinl of viov, as opposod lo llo ox faclo porspoclivo. Al llo oponing
slago of llo oporalion, llo informalion avaiIabIo lo llo IDI vas llal
no subslanliaI vioIonl opposilion vas IikoIy lo ovoIvo. Tlo subsoquonl
oscaIalion occurrod villin a lonso and vioIonl silualion, vlicl invoIvod
docisions boon immodialoIy lakon. Wo lavo aIroady monlionod llal in
llo conloxl of vioIonl confronlalions, soIdiors lavo froquonlIy onIy parliaI
informalion, vlicl Ialor on, in an ox posl porspoclivo, may bo provod as
boing unroIiabIo undor llo circumslancos.
Wo aforomonlionod llal boll llo poIilicaI and llo miIilary docision
makors lavo aclod in good faill, vliIo laking inlo considoralion llo
obIigalions of IsraoI undor llo inlornalionaI Iav during llo proparalion
slagos, as voII as villin llo oporalion ilsoIf. Giving approprialo voigll
lo IsraoI's obIigalions aIso fillod llo gonoraI inlorosl of IsraoI lo avoid
inlornalionaI doIogilimizalion and damago lo IsraoI's imago.
254. In concIusion, llo iniliaI slago of llo oporalion, unliI llo firsl soIdior
cIimbod dovn lo llo Marmara, as voII as llo ollor abovomonlionod slagos,
lad boon conduclod according lo llo inlornalionaI Iav. Indood, Iooking
al llis issuo llrougl an ox posl porspoclivo, llo non-aggrossivo laclics
appIiod by llo IDI al llis slago, providod llo IHH parlicipanls vill llo
opporlunily lo croalo a vioIonl and ligl profiIo confronlalion, gonoraling
an oscaIalion vlicl invoIvod llo uso of firoarms and non-IollaI voapons.
Nolvillslanding llo aforosaid, llo docision of IsraoI lo impIomonl a non-
vioIonl approacl al llo iniliaI slago of llo oporalion did nol vioIalo in
any sonso ils obIigalions undor llo inlornalionaI Iav. A counlry doos nol
vioIalo llo inlornalionaI Iav vloro il acls in a "sofl" modo, loping llal
llo Iavbroakors do nol oscaIalo llo silualion. Tlo viIIingnoss lo provido
a prospocl of conducling and concIuding an oporalion villoul any
vioIonco al aII slouId nol bo crodilod againsl llo onforcing counlry. Tlo
vioIonco vlicl lad boon usod by llo IHH group sorvod as llo docisivo
faclor Ioading lo llo oscaIalion of vioIonco villin llo oporalion.
Chapter B: CnncIusinns
255. Tlo Commission las roaclod llo foIIoving concIusions:
- A vossoI llal allompls lo broacl a bIockado is subjocl lo inlornalionaI
Iav govorning llo conducl of losliIilios: inlornalionaI lumanilarian
Iav, incIuding llo ruIos govorning uso of forco.
- Tlo IsraoIi armod forcos' inlorcoplion and capluro of llo Gaza IIoliIIa
vossoIs in inlornalionaI valors - soavard of llo bIockadod aroa - vas in
conformily vill cuslomary inlornalionaI lumanilarian Iav.
- Tlo laclics closon lo inlorcopl and capluro llo IIoliIIa vossoIs
-incIuding laving Slayolol 13 navaI commandoos board from Morona
spoodboals and fasl-ropo from loIicoplor onlo llo roof of llo vossoIs -
vas consislonl vill oslabIislod inlornalionaI navaI praclico.
- Tlo parlicipanls in llo IIoliIIa voro prodominanlIy an inlornalionaI
group of civiIians vloso main goaI vas lo bring pubIicily lo llo
lumanilarian silualion in Gaza by allompling lo broacl llo bIockado
imposod by IsraoI.
- On board llo M.ti M.rm.r. and llo ollor fIoliIIa vossoIs vas a group
of IHH and affiIialod aclivisls (llo IHH aclivisls) llal vioIonlIy
opposod llo IsraoIi boarding. Tlo IHH aclivisls vlo parlicipalod in
llal vioIonco voro civiIians laking a dirocl parl in losliIilios.
- Tlo forco usod againsl civiIians on board llo fIoliIIa vas govornod by
llo principIos of "nocossily" and uso of "proporlionalo forco" associalod
vill luman riglls basod Iav onforcomonl norms. Hovovor, llo IHH
aclivisls Iosl llo proloclion of lloir civiIian slalus for sucl limo as lloy
diroclIy parlicipalod in llo losliIilios. Tlo uso of forco againsl lloso
dirocl parlicipanls in losliIilios is govornod by llo appIicabIo ruIos of
inlornalionaI lumanilarian Iav.
- Tlo RuIos of Ingagomonl for llo oporalion providod an aullorily lo
uso forco llal rofIoclod llo naluro of a Iav onforcomonl oporalion.
- Tlo IHH aclivisls carriod oul llo vioIonco on board llo M.ti M.rm.r. by
arming llomsoIvos vill a vido array of voapons, incIuding iron bars,
axos, cIubs, sIingslols, knivos, and molaI objocls. Tloso voro voapons
capabIo of causing doall or sorious injury. Iurllor, llo losliIilios
voro conduclod in an organizod mannor vill IHH aclivisls, inicr .|i.,
oporaling in groups vlon vioIonlIy assauIling llo IDI soIdiors.
- Tlo IHH aclivisls usod firoarms againsl llo IDI soIdiors during llo
losliIilios.
- Tlo Commission las oxaminod 133 incidonls in vlicl forco vas usod.
Tlo majorily of llo usos of forco invoIvod varning or dolorring firo
and Ioss-IollaI voapons.
- OvoraII, llo IDI porsonnoI aclod profossionaIIy in llo faco of oxlonsivo
and unanlicipalod vioIonco. Tlis incIudod conlinuing lo svilcl back
and forll bolvoon Ioss-IollaI and IollaI voapons in ordor lo addross
llo naluro of llo vioIonco diroclod al llom.
- Tlo Commission las concIudod llal in 127 casos, llo uso of forco
appoarod lo bo in conformily vill inlornalionaI Iav.
- In six casos, llo Commission las concIudod llal il las insufficionl
informalion lo bo abIo lo mako a dolorminalion.
- Tlroo oul of lloso six casos invoIvod llo uso of Iivo firo and llroo casos
invoIvod plysicaI forco, lvo incidonls of kicking and ono slriko vill
llo bull of a gun.
- In fivo oul of llo 127 incidonls llal appoarod lo bo in conformily
vill inlornalionaI Iav, lloro vas insufficionl ovidonco lo concIudo
llal llo uso of forco vas aIso in accordanco vill Iav onforcomonl
norms. Hovovor, in lloso casos, forco appoarod lo bo usod againsl
porsons laking a dirocl parl in losliIilios and, as a consoquonco, vas in
conformily vill inlornalionaI Iav.
- Tlo pIanning and organizalion of llo IDI mission lo onforco llo bIockado
did nol incIudo anlicipalion llal lloro vouId bo a vioIonl opposilion
lo llo boarding, vlicl lad a dirocl impacl on llo oporalionaI laclics,
RuIos of Ingagomonl, and lraining boforo llo oporalion. Hovovor,
llo focus of llo pIanning and organizalion of llo oporalion on a Iovor
IovoI of rosislanco did nol Ioad lo a broacl of inlornalionaI Iav.
CnncIuding Remarks
Today, approximaloIy fivo monlls aflor loaring llo firsl loslimonios,
llo Commission is compIoling llis parl of ils vork by submilling llis
roporl lo llo Govornmonl of IsraoI. Ior vlom vas llo roporl vrillon` Il
vas vrillon, of courso, for llo Govornmonl of IsraoI, bul aIso for miIilary
porsonnoI and jurisls sludying inlornalionaI lumanilarian Iav, vlo may,
porlaps, uso il in llo fuluro for guidanco and inslruclion, for llo pubIic,
vlo in aII llo confusion of informalion vislos lo knov vlal lapponod,
and for oursoIvos, vlo sougll vill aII our abiIilios lo arrivo al llo lrull.
Aflor a journoy fuII of obslacIos and pilfaIIs, and aflor oxlauslivo
invosligalions, inquirios, sludios and discussions, vo unanimousIy and
vloIoloarlodIy summarizo our concIusions:
Tlo navaI bIockado imposod on llo Gaza Slrip - in viov of llo
socurily circumslancos and IsraoIs offorls lo compIy vill ils lumanilarian
obIigalions - vas IogaI pursuanl lo llo ruIos of inlornalionaI Iav.
Tlo aclions carriod oul by IsraoI on May 31, 2010, lo onforco llo
navaI bIockado lad llo rogrollabIo consoquoncos of llo Ioss of luman
Iifo and plysicaI injurios. NonolloIoss, and dospilo llo Iimilod numbor of
usos of forco for vlicl vo couId nol roacl a concIusion, llo aclions lakon
voro found lo bo IogaI pursuanl lo llo ruIos of inlornalionaI Iav.
'Nov aII las boon loard, loro is llo concIusion of llo mallor.
}uslico Imorilus }acob TurkoI
Clairman of llo commission
Major-GonoraI (ros.) Amos Horov
Irof. MiguoI Doulcl
Iord David TrimbIo
Obsorvor
Brigadior-GonoraI (rol.) Konnoll Walkin
Obsorvor
Annexes
Annex A: List nI Witnesses Appearing BeInre the
Cnmmissinn, the Dates and CIassiIicatinns
nI their Testimnnies
Annex B: Map nI Gaza and the Iand bnrder crnssings
Annex C: Nntice tn Marines Aug. 2008
Annex D: Map nI the bInckaded area
Annex E: List nI Gnnds nn FIntiIIa VesseIs
Annex F: Map nI the area where the takenvers
nI the IIntiIIa tnnk pIace
Annex G: Drawing nI the Main Marmara
Annex A: the List of Witnesses Appearing Before the Commission,
the Dates and Classifications of their Testimonies
Closed door testimony Public testimony Date
Opening meeting 28.6.10
Prime Minister, Mr. Benjamin
Netanyahu
Prime Minister, Mr. Benjamin
Netanyahu
9.8.10
Defense Minister, Ehud Barak Defense Minister, Ehud Barak 10.8.10
IDF Chief of Staf Lt. Gen.
Gaby Ashkenazi
Gaby Ashkenazi
11.8.10
Maj. Gen. (ret.) Giora Eiland,
Chair the IDF General
Staf Expert Inquiry Team
[meeting]
24.8.10
Maj. Gen Avichai Mendelblit,
IDF Chief Military Advocate
General
Maj. Gen Avichai Mendelblit,
IDF Chief Military Advocate
General
26.8.10
Maj.-Gen. Eitan Dangot,
Coordinator of Government
Activities in the Territories
Maj.-Gen. Eitan Dangot,
Coordinator of Government
Activities in the Territories
31.8.10
Dr. Uzi Arad, Chairman of
the Israeli National Security
Council and the Prime
Ministers National Security
Advisor
13.9.10
Mr. Meir Dagan, Director of
the Mossad
14.9.10
Mr. Yossi Gal, Director
General of the Ministry of
Foreign Afairs
Mr. Yossi Gal, Director General
of the Ministry of Foreign
Afairs
15.9.10
Mr. Yossi Edelstein, Head
of the Enforcement and
Foreigners Division of the
Population and Immigration
Authority
12.10.10
Lt. Gen Benny Kaniak,
Commander of the Prison
Service
12.10.10
B'Tselem: The Israeli
Information Center for
Human Rights in the
Occupied Territories, Ms.
Jessica Montel, and Mr. Eyal
Hareuveni.
13.10.10
Doctors for Human Rights,
Prof. Tzvi Bentowitz, Mr. Ran
Yaron, and Dr. Mustafa Yassin.
13.10.10
Gisha: The Legal Center for
Freedom of Movement, Ms.
Tamar Feldman
13.10.10
Gaby Ashkenazi
Gaby Ashkenazi
24.10.10
MK Tzipi Livni, Leader of the
Opposition
MK Tzipi Livni, Leader of the
Opposition
25.10.10
Sheikh Mr. Hamad Abu Dabus 25.10
Mr. Muhammad Zidan 25.10

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Annex B: Map of Gaza and the land border crossings
Annex C: Notice to Marines Aug. 2008
NO. 6/2008 AII mariners be advised
Wodnosday, 13 Augusl 2008 00:00
No. 6 / 2008 13 Augusl, 2008
AII marinors bo advisod:
P|c.sc nci i|c |c||cuing nciicc |rcm i|c |sr.c|i N.t.
1. Tlo IsraoIi Navy is oporaling in llo marilimo zono off llo coasl of llo
Gaza Slrip. In Iigll of llo socurily silualion, aII foroign vossoIs aro
advisod lo romain cIoar of aroa A in llo allaclod map. Bound by llo
foIIoving coordinalos:
E N
1. 34.10.02 31.46.08
2. 33.56.41 31.33.48
3. 34.29.28 31.35.42
4. 34.13.06 31.19.23
DoIivory of lumanilarian suppIios lo llo civiIian popuIalion in llo
Gaza Slrip is pormillod llrougl llo Iand crossings bolvoon IsraoI and
llo Gaza Slrip, subjocl lo prior coordinalion vill llo IsraoIi Aullorilios.
2. VossoIs approacling llo marilimo zono off llo coasl of llo Gaza Slrip
aro roquoslod lo mainlain radio conlacl vill IsraoI NavaI Iorcos on
clannoI 16 and viII bo subjocl lo suporvision and inspoclion.
3. In accordanco vill llo agroomonls bolvoon israoI and llo
IaIoslinian Aullorily, onlry of foroign vossoIs lo llo marilimo zono
adjaconl lo llo Gaza Slrip is prolibilod duo lo llo socurily silualion
and in Iigll of lloso agroomonls, foroign vossoIs aro barrod from
sucl onlry.
4. Tlis nolico is pubIislod in ordor lo onsuro safo navigalion and lo
provonl vossIos from approacling aroas in vlicl lloir safoly may
bo ondangorod duo lo llo socurily silualion in lloso aroas.
ADVISORY NOTICI (MARITIMI ZONI OII THI COAST OI GAZA
STRII)
AUG. 11, 2008

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Annex D: Map of the blockaded area
Annex E: List of Goods on Flotilla Vessels
Below is a list of all the goods unloaded from the fotillas vessels.
The SOFIA:
Amount of Cargo Type of Goods No.
143 units Electric scooters 1
128 units Electric wheel chairs 2
198 unit Batteries 3
197 pallets Walls for movable structures 4
10 pallets Fiberglass 5
234 boxes Medical equipment 6
1 unit Rubber boats (rescue) 7
34 batches of 12 units
400 units total
Roof constructions 8
89 gallons Gallons of paint 9
117 boxes Scattered cardboard boxes 10
164 items Work tools and ladders 11
35 pallets Ceramic fooring 12
17 pallets Lumber 13
167 units Wooden profles 14
17 boxes Toys 15
131 boxes Boxes of clothing 16
7 boxes School bags 17
10 pallets Pipes 18
2 containers Desalination device 19
9 pallets Metal sheets 20
I unit Generator 21
19 units Tents 22
35 packages Tent gear 23
3 pallets Water containers 24
The DEFNEY:
138 units Wheel chairs 1
463 boxes Boxes of clothing 2
38 boxes Scattered equipment 3
287 boxes Electric tools 4
2084 boxes / items Medical equipment 5
770 boxes Toys 6
65 units Generators 7
9 units Cardboard boxes 8
121 gallons Gallons of paint 9
117 cartons Scattered cardboard boxes 10
149 items Work tools and ladders 11
61 pallets Ceramic fooring 12
858 boxes Raw materials for building 13
11 pallets Lumber 14
978 pallets Constructions for structures 15
6 pallets Drywall 16
21 pallets Pipes 17
2 pallets Windows 18
23 pallets Electronic gear 19
49 pallets Food 20
181 pallets Bathroom fxtures 21
85 pallets Beds 22
77 pallets School gear 23
164 cartons Boxes with building equipment / structures 24
97 pallets Carpets 25
165 units Industrial fabric 26
105 units Work tools 27
34 units Plastic for industry (profles) 28
176 pallets Blankets 29
12 units Sewing machines 30
645 pallets Electric cables 31
18 pallets Floor tiles 32
15 pallets Metal 33
63 pallets Metal plates 34
104 units Metal profles 35
The GAZZE:
1358 units Concrete Bales 1
304 units Metal bars 2
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Annex F: Map of the area where the takeovers
of the flotilla took place
Annex G: Drawing of the Main Marmara
Lord David Trimble,
Observer
Supreme Court Justice (Ret.)
Jacob Turkel, Chairman
Ambassador Professor
Shabtai Rosenne
(Deceased 21.9.10), Member
General (Ret.) Amos Horev,
Member
Ambassador Reuven Merhav,
Member
Professor Miguel Deutch,
Member
Prof Michael Schmitt,
Special Consultant
Prof. Dr. Wolff Heintschel von Heinegg,
Special Consultant
Advocate Hoshea Gottlieb,
Commission's Coordinator
Brigadier General (Ret.)
Kenneth Watkin, Q.C., Observer
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