A US Policy Shift?
Let us now turn to the standard assumption that Bush-***** diplomacy represents a considerable departure from traditional US policies. One argument offered to explain this alleged fact is that the end of the Cold War reduces Israel's role as a "strategic asset." Anthony Lewis and other doves also argue that "the gulf war showed that U.S. armed forces could act in the Middle East without Israel." The upbeat analyses of the doves are also much influenced by the conflicts that have arisen between the Bush and Shamir governments, which are taken to show that "a more detached relationship is developing in which America will more freely weigh its own values and interests," not just follow the Israeli lead (Lewis).15 None of these arguments is very persuasive.
The first rests on the general assumption that US policies towards the Third World have been motivated by concern over the Soviet threat. This is official doctrine for obvious propaganda reasons, but it is hardly sustainable, often the reverse of the truth, for reasons extensively documented elsewhere.. With regard to the Middle East, even before the Soviet pretext was lost serious analysts recognized that "radical nationalism" was the prime target of US intervention capacity (e.g., Robert Komer, the architect of President Carter's Rapid Deployment Force, in congressional testimony). By now it is conceded that the "threats to our interests" in that region "could not be laid at the Kremlin's door" (White House National Security Strategy report to Congress, March 1990).16 As for the lessons of the Gulf, surely no one ever doubted that the US could act without Israel, and in some circumstances would choose to do so. This has little bearing on Israel's perceived role as a strategic asset, particularly since the 1960s, when it was regarded by the US as a major barrier to Arab nationalist pressures against Saudi Arabia, led by Egypt's President Nasser.
The third point is based on a correct observation: there are conflicts between Bush and Shamir. But as noted, there is no reason to believe that these are any different from the ones that have arisen for many years, reflecting different approaches to a rejectionist settlement. Failure to sort out these matters properly has led to much confusion about what is happening.
Let us begin with the situation within Israel. There are two major political groupings, Likud and Labor, each a coalition. The position of Likud, now governing, has always been that Israel should extend its sovereignty over the occupied territories. Its central component, Prime Minister Shamir's Herut party, has never abandoned its claim to Jordan, regularly reiterated in its electoral programs. That was also the traditional position of a central component of the Labor coalition, based on the largest kibbutz movement, TAKAM (Ahdut Avodah, historically extremely expansionist), a position never officially abandoned, to my knowledge.
The logic of the Likud position has recently been outlined by Defense Minister Moshe Arens, by no means an extremist. "In the final analysis," he said in a recent interview, "the existence of the State rests on the principle that we have a right to be here. We are not here by kindness in a land that is foreign to us.... Any agreement, even conditional, that this right is limited -- touches on the essence of our existence here." Therefore, "the very existence of Israel depends on the settlements" in the occupied territories, and Israel's right to establish them at will.17 Scarcely concealed is the premise that the US taxpayer has the duty to pay the costs for Israel's "rights."
In conformity with this reasoning, "Since Mr. ***** launched his postwar peace mission in early March [1991], Israel has confiscated more than 18,000 acres of Arab-owned land as part of its continuing effort to develop the territories for Jews," the Wall Street Journal reports, and now has taken title to about 68% of West Bank land by various forms of legalistic chicanery.18 The Journal draws no conclusions about what this might imply concerning the nature and intent of "Mr. *****'s peace mission." The operative assumption of objective journalism is that the US stands by, a helpless victim, pouring in funds for activities that it is unable to influence.
The Labor coalition, which governed until 1977 and intermittently since, has preferred a different version of rejectionism. Its position, which has varied in details over the years, is based on the "Allon plan" adopted in 1968. It calls for Israel to take what it wants in the occupied territories: the resources, particularly West Bank water, on which Israel heavily relies; the usable land, including the area around a vastly expanded Jerusalem, now favored residential areas for the urban centers of Tel Aviv and Jerusalem; the Jordan valley; etc. Similarly, Israel must control the Golan Heights, in particular, its valuable water resources, now estimated to supply 25% of Israel's needs19; with regard to the Golan Heights, Labor is more hawkish than Likud. Earlier versions also called for Israeli control over Eastern and Northeastern Sinai. But Israel should not take responsibility for the Arab population concentrations, which are to remain stateless or administered by Jordan under effective Israeli control. The reason is "the demographic problem," the burden of dealing with too many Arabs in what is, by law, "the sovereign State of the Jewish people" in Israel and the diaspora, not the State of its citizens. A commitment to deprive too many citizens of rights carries costs that Labor considers too high. The prevailing assumption has been that if only a minority, less than 20%, are second-class citizens by law, the costs will be tolerable, and Western commentators will be able to marvel over Israeli democracy. But problems increase if the numbers rise high enough to evoke images of South Africa.
The US has tended to support the more rational Labor party form of rejectionism, a fact that brings it into occasional conflict with the government of Israel, as in the past few months. From the point of view of the Palestinians, there is little to choose between these two positions. Many Palestinians and Israeli doves regard the Likud version as potentially more hopeful; and in fact, Likud occupation policies have often been less harsh than those of the Labor party, contrary to the standard depiction of Labor doves versus Likud hawks.
The US has also objected to the defiant and brazen settlement programs of Likud, preferring Labor's technique of quietly "building facts" that will determine the shape of the final outcome. In this connection, the disagreements are more about method than goal, as we see when we take a closer look at the actual policies and the thinking that lies behind them.
The traditional Labor party doctrine was expressed by Prime Minister Golda Meir in addressing new Soviet immigrants in a meeting on the Golan Heights in September 1971: "the borders are determined by where Jews live, not where there is a line on a map." The guiding views were elaborated by her Minister of Defense, the influential planner Moshe Dayan, often considered something of a dove. He repeatedly emphasized that the settlements are "permanent," the basis for "permanent rule" by Israel over the territories: "the settlements are forever, and the future borders will include these settlements as part of Israel."
The leading figure of the Labor party, David Ben-Gurion, held essentially the same view during the period of his political influence. Israeli journalist Amnon Kapeliouk observed 20 years ago that "every child in Israel knows one of the most famous expressions of the founder of the Jewish state, David Ben-Gurion: It is not important what the Gentiles say, what matters is what the Jews do'." Ben-Gurion's conception, clearly articulated in internal documents and sometimes in public, was that "a Jewish state...will serve as an important and decisive stage in the realization of Zionism," but only a stage: the borders of the state "will not be fixed for eternity," but will expand either by agreement with the Arabs "or by some other way," once "we have force at our disposal" in a Jewish State. His long-term vision included Jordan and beyond, sometimes even "the Land of Israel" from the Nile to the Euphrates.
During the 1948 war, Ben-Gurion's view was that "To the Arabs of the Land of Israel only one function remains -- to run away." The words reflected traditional Zionist attitudes. Chaim Weizmann, the first President of Israel and the most revered Zionist figure, observed casually that the British had informed him that in Palestine "there are a few hundred thousand Negroes, but that is a matter of no significance." Weizmann had in turn informed Lord Balfour after World War I that "the issue known as the Arab problem in Palestine will be of merely local character and, in effect, anyone cognizant of the situation does not consider it a highly significant factor." Hence displacement of the Arabs and expansion of the Jewish settlement can be pursued with no moral qualms, merely tactical concerns.20
The preferred image among cultivated US commentators is that Ben-Gurion was "a decisive man, steeped in classical culture, straightforward," "a man strong enough to compromise for the good of his people," in dramatic contrast to Yasser Arafat, who is "wily, certainly persistent and stubborn, gleefully adept at evasion" (much-respected New York Times columnist Flora Lewis).21 The reality, fully clear in the documentary record, is that Lewis's description of Arafat applies no less to Ben-Gurion. And of course, Lewis need not be concerned about Arafat's support for the 1976 UN resolution, his repeated calls for negotiations with Israel leading to mutual recognition through the 1980s, etc., all successfully effaced from history.
The prevailing attitudes of the founders informed the internal policy planning of the 1967-77 Labor government. The matter is well worth understanding, because it is the Labor programs that the US government and more dovish elements in respectable US circles have tended to support. There is a revealing and well-documented review of cabinet discussions and decisions by Yossi Beilin, a high-level Labor party functionary close to Shimon Peres, now the official dove in US propaganda.22 Israel's first policy decision was on June 19, 1967, when a divided (11-10) cabinet proposed a settlement on the Green Line with Syria and Egypt (with Israel keeping Gaza), but no mention of Jordan and the West Bank. This proposal is described by Israeli diplomat Abba Eban in his retrospective account as "the most dramatic initiative that the government of Israel ever took before or since." Given the strong opposition to the proposal, it was kept secret, though it was secretly transmitted to Washington, to be passed on to Arab states.
As noted, Moshe Dayan was a leading Labor party planner, and West Bank Arabs look back with some nostalgia to the days of his rule, because of his recognition of the justice of the Palestinian cause (which, however, must disappear into the ashcan of history, he held) and his belief that the authorities should keep out of the personal affairs of their Palestinian subjects. Dayan's first proposals, described by Beilin as "moderate," were presented to the cabinet on June 13, 1967. He proposed that Israel should annex the Gaza strip and "undertake negotiations with the Americans -- but only them -- about the transfer of Arabs [from the Gaza strip] to the West Bank" so that Israel would not have to absorb a million Arabs into the State. If Hussein agrees to accept "autonomy" for the West Bank, then Israel should allow him formally to take it over while Israel "rules to the Jordan river" in matters of security and foreign affairs, arrangements that would enable Israel to "build facts" quietly in the traditional fashion. As noted, the cabinet did not accept his views, keeping the West Bank and Jordan out of their secret proposal entirely.
Along with Shimon Peres, Dayan was part of Rafi, the most hawkish sector of the Labor coalition apart from Ahdut Avodah (the main kibbutz movement). At a Rafi meeting of September 1967, there was a dispute between Peres and Dayan after Dayan explained more fully his position with regard to the Palestinian refugees in the occupied territories: "Let us approach them and say that we have no solution, that you shall continue to live like dogs, and whoever wants to can leave -- and we will see where this process leads." After they have lived "like dogs" under Israeli military occupation, Dayan continued, "It is possible that in five years we will have 200,000 less people -- and that is a matter of enormous importance." Peres objected to Dayan's advice that Israel become "like Rhodesia," arguing that these measures would harm Israel's international image and prospects for immigration. For these tactical reasons, he argued, it is necessary to preserve Israel's "moral stand." Dayan's response was: "Ben-Gurion said that anyone who approaches the Zionist problem from a moral aspect, he is not a Zionist." He continued to advocate the Rhodesian solution.
In the same September 1967 meeting, Rafi established its settlement policy, then implemented. It was written by Peres. He observed that "Israel's new map will be determined by its policies of settlement and new land-taking," and therefore called for "urgent efforts" to establish settlements not only in East Jerusalem, but also "to the north, south and east," including Hebron, Gush-Etzion, etc.; the Jordan valley; "the central region of the mountains of Shechem [Nablus]"; the Golan Heights, the El-Arish region in the Sinai and the Red Sea access. The Labor coalition policies were even more extreme, notably the Galili protocols of 1973 and the policies implementing them, including the expulsion of thousands of Beduins into the desert, their homes, mosques and graveyards destroyed to clear the lands for the all-Jewish city of Yamit in northern Sinai, steps that led directly to the 1973 war.
Much is made in US propaganda about Israel's eagerness to make peace after the 1967 war, if the Arabs could only bring themselves to make a simple telephone call. In a BBC interview on June 13, 1967, Dayan indeed said that Israel awaits a telephone call from the Arabs: "For our part, we will do nothing," he added. "We are quite happy with the current situation. If anything troubles the Arabs, they know where to find us."23 Hardly a passionate plea for peace, particularly when seen in context.
A month before the Rafi meeting, in August 1967, Yigal Allon had advanced his "Allon plan," which became official policy a year later. Israel's position after cancellation of the secret 1967 proposal was presented to the UN by Abba Eban on September 8, 1968. Since then, the Labor coalition has adopted one or another version of the Allon plan. Its precise terms have never been clearly established, at least in the public record. But the basic content, sketched above, has been made reasonably clear along with occasional variations as circumstances change.
No other Israeli initiatives are known. The general policy for which there is any documentation, to my knowledge, follows the guidelines expressed by President Haim Herzog in 1972: "I do not deny the Palestinians any place or stand or opinion on every matter. But certainly I am not prepared to consider them as partners in any respect in a land that has been consecrated in the hands of our nation for thousands of years. For the Jews of this land there cannot be any partner." Note that Herzog's attitudes are well within the mainstream of liberal Zionism, including Chaim Weizmann and others.
Given the prevailing assumptions, it is not at all surprising that Dayan agreed with the policy of blocking all political activities on the West Bank, including pro-Jordanian activities. True, he was not as extreme as Prime Minister Golda Meir. Thus in 1972, Dayan at first was willing to permit a pro-Jordanian political conference in the West Bank, but he raised no objection when Meir ordered Minister of Police Shlomo Hillel to prevent it. Labor party policies are described by former Chief of Israeli intelligence Shlomo Gazit, a senior official of the military administration from 1967 to 1973. The basic principle, he observes, was "that it is necessary to prevent the inhabitants of the territories from participating in shaping the political future of the territory and they must not be seen as a partner for dealings with Israel"; hence "the absolute prohibition of any political organization, for it was clearly understood by everyone that if political activism and organization were permitted, its leaders would become potential participants in political affairs." The same considerations require "the destruction of all initiative and every effort on the part of the inhabitants of the territories to serve as a pipeline for negotiations, to be a channel to the Palestinian Arab leadership of the territories." Israel's policy is a "success story," Gazit wrote in 1985, because these goals had been achieved, with continued US support and to much applause from left-liberal opinion in the United States.24
The Labor coalition began to speak of "territorial compromise only after the Yom Kippur war" of 1973, Beilin records, and expressed its willingness to consider "territorial compromise" in the West Bank "only at the end of February 1977," after "a severe dispute" internally. The terms "territorial compromise" and "land for peace" are used to refer to one or another version of the Allon plan, always rejecting entirely the Palestinian right to self-determination. The term "interim agreement" has a broader propaganda usage, incorporating either the Labor or the Likud form of rejectionism. These terms are blandly adopted by US commentators, either deceived by the rhetoric or engaged in deception themselves.
As noted, the US has favored the Labor variety of rejectionism, more rational, and better attuned to the norms of Western hypocrisy. These more devious methods are easier to conceal than Likud expansionism, though the eventual outcome may not be greatly different. These are the primary issues that have separated the US and Israel from virtually the entire world. It is for that reason that the US has been compelled to block the peace process in the manner briefly reviewed.