JULY/AUGUST 2016
THE TRUTH ABOUT TRADE AND JOBS
FO REIGNAF FAI RS.COM
The
Struggle
for
Israel
JULY/AUGUST2016•VOLUME95•NUMBER4•THESTRUGGLEFORISRAEL
it, Netanyahu now leads the most rightwing
government in Israel’s history,
which Benn argues is allowing Netanyahu
to realize his long-held dream: replacing
Israel’s old moderate and secular elite
with a new hard-line and religious one.
Robert Danin, an American diplomatic
veteran of the now-moribund
peace process, examines the new threats
and often overlooked new opportunities
facing Israel’s foreign-policy makers.
As’ad Ghanem of the University of
Haifa explores the plight of Israel’s
Arab citizens, who are enjoying unprecedented
material gains even as they face
unprecedented threats to their political
rights. And Amos Harel, one of Israel’s
leading defense analysts, describes the
challenges facing the country’s vaunted
military, including the recent wave of
“lone wolf” knife attacks.
Finally, Martin Kramer of Shalem
College offers a vigorous dissent, noting
that in many respects, Israel is better
off today than ever before. What has
changed, in his view, is less Israel
than the attitudes of others, including
Washington—whose fecklessness and
withdrawal from the Middle East represent
a real but manageable problem for
the Jewish state.
Israelis disagreeing with one another is
hardly new. But the bitterness of today’s
fights underscores the depth of the
changes and choices facing the country.
—Jonathan Tepperman, Managing Editor
I
t’s common knowledge that the
Middle East is in turmoil these days
and that there are major tensions
between the United States and one of its
crucial allies in the region, Israel. Less
commonly understood are the profound
ways in which Israel itself is changing.
In important respects, the country
no longer resembles the image many
Westerners still picture—the liberal
Zionist state of David Ben-Gurion,
Abba Eban, Golda Meir, and Yitzhak
Rabin. The socialist Ashkenazi elite
that used to dominate Israel’s politics
has long since fractured and faded away.
Sephardic Jews, Soviet immigrants,
settlers, the religious right, secular
Jews, and Arab Israelis now vie for influence.
In foreign policy, meanwhile, what
Israel stands for, and who it stands
with, is also in play.
To scout this new landscape, we’ve
turned to some of Israel’s leading politicians
and observers. What emerges is
a picture of a country enjoying a rare
moment of relative peace with most
of its neighbors, even as it experiences
intensifying conflicts at home.
Leading off the package are interviews
with two of Israel’s most powerful
women: Ayelet Shaked, the current justice
minister, and Tzipi Livni, a former justice
minister and former foreign minister.
Their contrasting visions starkly illuminate
the country’s current political divide.
Next, Aluf Benn, editor in chief of
Haaretz, describes Israel’s transformation
through the story of Prime Minister
Benjamin Netanyahu’s long career. A
moderate when circumstances required
THE STRUGGLE FOR ISRAEL
A Conversation With Ayelet Shaked 2
A Conversation With Tzipi Livni 10
The End of the Old Israel
Aluf Benn 16
Israel Among the Nations
Robert M. Danin 28
Israel’s Second-Class Citizens
As’ad Ghanem 37
Israel’s Evolving Military
Amos Harel 43
Israel and the Post-American
Middle East
Martin Kramer 51
Israel—at least the largely
secular and progressive
version of Israel that once
captured the world’s
imagination—is over.
—Aluf Benn
STAVROSPAVLIDES
2 FOREIGN AFFAIRS
THESTRUGGLEFORISRAEL
Ministering
Justice
A Conversation With
Ayelet Shaked
A
yelet Shaked is a relative
newcomer to Israeli politics.
Shaked, 40, served as Benjamin
Netanyahu’s office manager before
breaking with the prime minister and
joining Naftali Bennett’s Jewish Home
party in 2012 and then winning election
to the Knesset in 2013. Following the
2015 election, Shaked was named Israel’s
minister of justice. Since then, she has
courted controversy with a number of
moves that critics call undemocratic,
such as promoting a bill that would
highlight which nongovernmental organizations
(NGOs) get a majority of their
funding from foreign governments.
Shaked, who worked as a software engineer
before entering politics, recently
spoke to Foreign Affairs’ managing editor,
Jonathan Tepperman, in Tel Aviv.
You’ve been justice minister for a year
now. Which accomplishments you are
most proud of?
One is the nomination of judges. I’ve
already nominated 100 judges [to fill vacant
posts], which is a lot. Also, we are doing
a lot of things to reform the legal system,
to alleviate court backlogs, to reform the
bankruptcy law. I’m trying to find any
business regulations that I can relax.
The transparency bill is also important,
but it hasn’t passed yet. And the terror
bill, which the Knesset has tried to pass for
more than five years without success, will
pass next month [in June]. It’s also very
important; it gives the Shabak [Israel’s
internal security service, also known as
the Shin Bet] and the police new tools
to fight terror.
What kind of tools?
For example, it allows them, in specific
circumstances, to prohibit a suspect from
seeing a lawyer for 21 days. Things
like that.
What’s it like to be a leader of the Jewish
Home—a political party known as the
main voice for religious settlers—as a
secular woman and Tel Aviv resident?
The fact that I was elected to my post
in an open party primary shows that
Jewish Home voters are very open and
very liberal. I see my party as a bridge
between the Orthodox and the secular.
We believe that we should all live
together and respect one another.
You currently serve under Prime Minister
Netanyahu. You started your career
working for him directly but then broke
with him in 2012 and left Likud. What
are the main differences today between
you and Netanyahu, you and Likud?
The main difference between the Jewish
Home and Likud, apart from religion and
ideology, is that we object to a Palestinian
state, while Likud, and the prime
minister, supported one.
To return to your earlier question,
I’m also trying to promote Arab society
in Israel, by creating new courts in Arab
cities and appointing a woman as a qadi
[an Islamic judge, with jurisdiction over
family law] for the first time.
ILIAYEFIMOVICH/GETTYIMAGES
This interview has been edited and condensed.
Return to Table of Contents
Niss as ipsunt eum, omniet
veliquatet eos res ut doler
omnihiliquis abora dem eos
aut labore lorem sipim.Shaked in Tel Aviv, February 2015
Ministering Justice
4 FOREIGN AFFAIRS
Are these reforms meant to address the
inequalities between Arab Israelis and
Jewish Israelis?
There’s no inequality. According to the
law, everyone is equal. But of course,
we need to invest more in some Arab
towns. And the government just passed
a big plan to do so.
So the problem is not one of legal
equality but one of resources?
Yes, sometimes. But the government is
now fixing that. And here in my ministry,
nine percent of employees are Arabs
or Druze.
To return to politics, there are rumors
that the prime minister is trying to
create a big new party of the right, which
would absorb all the smaller right-wing
parties. What do you think of that?
It’s not something we’ve really talked
about. I don’t think it’s realistic. But
we’d never rule anything out.
Some critics, including U.S. Ambassador
Dan Shapiro, have criticized the NGO
transparency bill as an attempt to muzzle
dissent. Why is the bill necessary?
Why publicly identify those NGOs that
get more than half of their support from
foreign governments?
The amount of attention this bill is
getting is absurd. There are so many
other important things that we are
working on, yet for some reason, this
bill gets so much attention. It’s just a
transparency bill. If an NGO gets more
than half of its money from a foreign
government, it’s the right of the
citizens of Israel to know that. Why?
Because some countries have found a
way to interfere in the internal affairs
of Israel—not through diplomacy but
by funding specific NGOs that serve
their ideology.
By “some countries,” do you mean the
United States and Europe?
Mainly Europe. And by the way, it’s not
that [such funding] won’t be allowed. It’s
allowed in a democracy. But I think that
the public has the right to know about it.
Critics say that the real point of the law
is to shame these organizations by
making their members wear special
badges in the Knesset and by imposing
a public label that would damage these
groups’ legitimacy.
First of all, the badges aren’t part of
the law. But by the way, every lobbyist
in the Knesset needs to wear a badge.
So even if the badges were in the law,
it wouldn’t be bad.
Second, it’s not about shaming. It’s
about the right to know. That’s all.
Do you feel that foreign governments
should not be funding NGOs in Israel?
I think that foreign governments should
not fund political NGOs in Israel. I don’t
think that the U.S. administration would
like it if Israel, for example, were to fund
an NGO in the United States that sued
American soldiers for their service
in Afghanistan.
Do you see the NGOs that would be
targeted by the law, such as Breaking
the Silence, as foreign agents or threats
to Israel?
They are not threatening Israel. Our
democracy is very strong; we can handle
them. But I think they are doing damage
to Israel outside the country, by spreading
a lot of lies and distorting the picture.
Sometimes if you only tell half a truth,
5
it’s a lie. They take one specific case and
generalize it, depict it as if it shows the
way all soldiers behave. They’re doing it
on university campuses in the United
States. It’s causing damage to Israel.
Would the legislation also affect groups
on the right?
I haven’t checked which NGOs would be
affected by the law.
There will be four to five vacancies on the
Supreme Court next year, and you’ll get to
help nominate the replacements. You’ve
been quite critical of the court in the past
and have tried to limit its ability to overrule
decisions by the executive or the
Knesset. What role do you think a supreme
court should play in a democratic society?
A very important role, of course. The
court’s job is to resolve disputes and
prevent the state from carrying out
actions that are illegal. I criticize the
court when it intervenes in matters of
policy, not in matters of law.
Do you have a problem in principle with
judicial review based on interpretation
of Israel’s Basic Laws?
No, I don’t. But I think that [the court]
should use that power very, very rarely,
and only in very prominent cases where
there’s been a violation of the law—not
on questions of policy.
In the United States, the Supreme Court
uses what it calls ”the political question
doctrine” to avoid getting involved in
questions it deems largely political.
Does a similar doctrine exist here?
Yes, but the reality is different. The U.S.
Supreme Court is also activist. But U.S.
Supreme Court justices are selected by
politicians. In Israel, it’s done by com- Rankings sourced by 2014 Thomson Reuters Journal Citation Reports and 2015 Google Scholar Metrics.
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Ministering Justice
6 FOREIGN AFFAIRS
self-destruction reminds him of Germany
in the 1930s. How do you interpret such
criticisms?
You have to distinguish between the
two. First of all, Yair Golan [the IDF’s
deputy chief of staff] retracted what he
said and said there is no room for such
a comparison.
Regarding [Freedom House], I want
to hear facts, not talk about atmosphere.
Israel is one of the strongest democracies
in the world, with close to absolute
freedom of expression. You can see that
by looking at our social networks.
So you don’t worry that any of the
measures you’ve mentioned could chill
freedom of expression here?
No, and they’re not intended to.
What about the new bill that would allow
the suspension of Knesset members for
making anti-Zionist statements?
I don’t like this law, and I don’t support
it. I don’t think it’s necessary. I only voted
for it out of coalition discipline. But it’s
unnecessary. I think that Knesset members
should say whatever they want. And
by the way, no one will use this law.
You recently proposed extending Israeli
civil law to settlements in the West Bank.
No. Don’t believe all the things that you
read in the newspapers.
Today in Israel, when a law is passed
in the Knesset, the military authority in
Judea and Samaria has discretion over
how to apply it in the settlements. What
I’ve proposed is that we set up a team
that would be manned both by the
Ministry of Justice and by the Ministry
of Defense to immediately translate new
laws into military regulations, rather than
letting it happen sporadically.
mittee. I’m the head of the committee,
but there are three Supreme Court justices
on it as well, and we can’t make a selection
without them. So the Supreme Court
judges have a lot of influence over the
selection of their replacements.
Would you like to change that?
There are a few things we cannot do in
this coalition. I’m not going to bang my
head against a wall. But we do favor a law
that would give judges the formal power
to cancel a law. This power was never
given to them by law; they just took it.
But the law would also give the Knesset
the power to override the court, like
Parliament can in Canada, for example.
But in Canada, Parliament can only
overrule the court on constitutional
issues if it specifies that it is doing so
notwithstanding the court’s opposition.
That acts as a check on Parliament.
What we’re talking about in Israel is
requiring a big majority, more than
60 percent of the Knesset, to do so.
Aren’t you worried this could give rise
to a tyranny of the majority? Because
the purpose of an unelected judiciary
is to act as a check on the legislature
to prevent pure majoritarian rule.
I think that if you require a vote [to
overrule the court] to pass by 65 percent,
then I don’t see the Knesset using
this power very often. It will be a rare
occasion.
Freedom House recently downgraded
Israel’s standing due to what it claims are
new restrictions on the freedom of the
press. And last week, the deputy chief of
staff of the IDF said that the current
climate of intolerance, violence, and
A Conversation With Ayelet Shaked
July/August 2016 7
the Shia and the Sunnis, and there are
terror organizations all over. Israel really
is like a villa in the jungle. And the
situation in Judea and Samaria for the
Palestinians—OK, it’s not perfect, but
it’s OK. They are living their lives; they
are selecting their leaders. The situation
could be far worse than it is now.
Second, I do believe in the historic right
of the Jewish people to the land of Israel.
So how do you see the relationship
with the Palestinians evolving? Aren’t
you worried that as conditions continue
to deteriorate, their anger will
continue to grow?
I don’t know if what you’re saying is
true. Israel-Palestinian security coordination
is strong. I think that Israel
and the international community need
to invest in the economy of the Palestinians.
Maybe this will help to weaken
Hamas. I think if we are willing to
push for prosperity and to invest in a
real economy, and if the international
community would not just transfer
money but give the Palestinians independent
energy and stronger industry,
it could help.
I also support building a port for
Gaza by building an island in the sea.
Tell me a bit more about the situation of
Arab Israelis. Do you feel that there are
major problems there that need to be
addressed?
I think that the government is now
doing the right things.
But a lot of damage was done by the last
government, which raised the threshold
of votes needed for a party to enter the
Knesset.
I supported leaving the situation as it
You’ve made it clear in the past that you
favor annexation of large parts of the
West Bank—Area C, which is something
like 61 percent of the territory. So it’s not
surprising that some of your critics have
called this move a first step toward
annexation. Is there anything to that?
No. We aren’t talking about annexing
Judea and Samaria. The proposal has
been criticized because, like you, no one
understands what it’s saying. Politicians
on the left want to use it to score political
points. No one has bothered to
understand what I really meant.
Speaking of annexation, what timeline
do you envisage?
It’s not realistic today. What I’m saying
is that the two-state solution will not
happen in the near future. The gaps
between the Palestinians and the Israelis
are much too big to bridge. Arafat, Abu
Mazen [Mahmoud Abbas], Olmert,
Barak—they all tried to do so many
times, and they failed. And the Gaza
withdrawal showed the Israeli public
that even though we withdrew down
to the last inch, we only got terror. You
know, Einstein defined insanity as when
you do the same thing over and over
again and expect different results.
That’s why today the majority of
Israelis don’t think it’s realistic to establish
a Palestinian state. So it’s not that I
think we can annex Area C today, but
I think it is something that we need
to talk about, to put on the table.
You make it sound like your objection to
the two-state solution is more practical
than ideological.
It’s just not realistic. All the countries
around us are collapsing, and there is a
huge battle in the Middle East between
Ministering Justice
8 FOREIGN AFFAIRS
Sunni states. And part of the weapons
embargo on Iran will be removed in five
years. And [the Iranians] will now get a
lot of money, so they will arm themselves.
Another threat is the nonconventional
arms race. Saudi Arabia and Egypt now
see that Iran will have a bomb in ten years.
So they also want a bomb.
What about the broader international
situation? Do you worry that Israel is
becoming more isolated internationally,
because of the BDS [Boycott, Divestment,
and Sanctions] movement or because of
the friction between the leadership here
and that in Washington?
I believe that the U.S. administration—
it doesn’t matter which administration—
will stand behind Israel in every bad
situation. The administration will understand
that Israel is its ally and the only
democracy in the Middle East.
And I expect the American administration
to fight the BDS movement on
university campuses.
The New York Times reported a few weeks
ago that tensions between Netanyahu
and President Obama were now delaying
the passage of a huge new aid bill the
two countries are negotiating.
I can only say that I hope they will
resolve it.
Do you ever worry that Israel is too
dependent on the United States?
The support of the United States is
very important. But I’m not worried
that someday we might need to get
along without it. If that does happen,
we will succeed. But I don’t see it
happening. I hope it won’t.∂
was and not raising the threshold. That
was unnecessary. But the goal was not to
hurt the Arabs but rather to strengthen
the government.
Whatever the intentions were, that rule,
and the comments the prime minister
made during the last election about
Arabs being bused in droves to polling
stations, created a lot of ill feeling among
the Arab Israeli population. Are the
moves you’re making now an attempt to
address that sense of alienation?
Many politicians said worse things than
the prime minister did during the election.
But we are doing what we’re doing
because we think it’s the right thing to do.
How do you assess Israel’s security
today? Some people argue that Israel is
more secure than it’s ever been, because
for the first time in its history, war with
an organized Arab army is impossible.
But others argue that the region is more
dangerous than ever, because of the
fragility of Israel’s new Arab friends,
because of the Shiite-Sunni divide,
because of Iran, and because of ISIS.
Which view is correct?
Both of them are correct. You are right:
there is no threat that a big Arab army
will invade Israel. But on the other hand,
there are many other threats. First of
all, of course, is Iran and its bomb. The
agreement with Iran did two things. First,
they will have a bomb in ten years. They
will have a bomb. It’s just a matter of a
decision. In ten years, if they decide to
have a bomb, they’ll have one a few months
later. This is a huge threat to Israel.
The other bad thing about this
agreement is that it caused an arms race
in the Middle East. The United States
wants to give more arms to moderate
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10 FOREIGN AFFAIRS
THESTRUGGLEFORISRAEL
Anger and Hope
A Conversation With
Tzipi Livni
T
zipi Livni has been called the
most powerful woman in Israel
since Golda Meir. Born to a
prominent right-wing family, Livni
spent several years working for the
Mossad, Israel’s foreign intelligence
service, before entering politics. In
the decades since, she has held eight
different cabinet posts—including
minister of justice and minister of
foreign affairs—and undergone a
dramatic ideological evolution. First
elected to the Knesset as a member
of Likud, in 2005 she joined Kadima,
a new centrist party founded by then
Prime Minister Ariel Sharon. A staunch
supporter of the peace process, Livni
created her own party, Hatnua, in 2012
and then joined forces with Labor to
form the Zionist Union before the 2015
election. Now a leading member of
the opposition, Livni recently spoke
to Foreign Affairs’ managing editor,
Jonathan Tepperman, in Tel Aviv.
When you speaks to Israelis today,
you’re apt to hear one of two competing
narratives. According to the first, things
are better than ever: the economy is
thriving, most of Israel’s enemies are in
disarray, and the current government
reflects the will of the people.
The other narrative is the complete
opposite: the region is more dangerous
than ever, Israel faces growing interna-
URIELSINAI/GETTYIMAGES
tional isolation, and the current government
is steadily reducing civil liberties
and freedoms. What’s your version?
It’s very clear that here in Israel there
are now not only two different states of
mind but also two different views about
what Israel needs and what Israel is. And
your view of reality depends on which
of these two views of Israel you hold.
Does that mean Israel is now more
polarized than ever before?
Yes, yes. It started before the last
election, but the election crystallized the
idea—quoting Netanyahu—that there’s
a gap between these two camps. He was
right then. And the things that he and
his government have done since then have
made this gap grow wider. Those that
are not in the government feel that what
is happening is completely against our
understanding of what Israel is, what
its values are, what Judaism is, what
democracy is.
Is Israeli democracy in decline?
We are fighting to keep Israel a
democracy—not just in terms of its
electoral system but also in terms of its
values. A lot of those on the other side
see democracy only as a question of who
is the majority. This is why they are trying
to weaken the role of the Supreme Court.
And this is why Netanyahu wants to
control the press.
In a democracy, you need to have a
strong judicial system. You need freedom
of speech, you need art, and you
need a free press. And all these things
are under threat right now. We in the
opposition need to fight for these values.
We need to push the idea that democracy
is a matter of values, and not just
the rule of the majority.This interview has been edited and condensed.
Return to Table of Contents
Niss as ipsunt eum, omniet
veliquatet eos res ut doler
omnihiliquis abora dem eos
aut labore lorem sipim.Livni in Tel Aviv, January 2013
Anger and Hope
12 FOREIGN AFFAIRS
Do you think you can win this battle?
The right has controlled Israeli politics
for years now. The current government
is the most hard-line in Israel’s history.
Netanyahu seems to have very few
plausible challengers. Given all of that,
plus the country’s changing demographics,
plus the public’s frustration
with the peace process, plus the chaos
in the region, can the left or the center
really make a comeback?
The good thing about having a government
like this one is that it makes everything
very clear. The more bluntly they
speak, the easier it becomes to rally the
support of our own camp.
What we need to do now is to go to
our base and say, “Listen, it’s now clear
what this government represents. If they
continue, they will take us to the point
of no return in the Israeli-Palestinian
conflict. They will change the nature
of Israeli democracy.”
And is your own camp big enough to win
an election?
It’s 50-50—for now. You are right: Israel
is changing in terms of demographics.
But when [the government] says that the
majority rules, they’re wrong, because
Ayelet Shaked and Naftali Bennett
represent a minority in Israel. Their
ideology of a Greater Israel, and an Israel
that’s more Jewish than it is democratic—
that’s a minority opinion here. What we
need to do is to find and speak to those
who are our natural partners.
But success also requires leadership
among the various parties in the center
and on the left, right? They must be
prepared to join forces.
It requires that voters understand that
in order to win, they need to work with
one leader, one party, and not spread
their votes all over. But as time passes,
people’s despair is growing. So it depends
on us. What I’m trying to do right now
is to say, let’s put on the table our basic
vision for the future of the state of
Israel. Not a specific platform, but a
general view of what needs to be done
about peace and security. And let’s
speak about the nature of Israel as a
Jewish democratic state. It’s not more
Jewish and less democratic, or more
democratic and less Jewish. And of course
we have to share our views about the
economy and society.
We need to put it all on the table,
not only for voters but also for the
heads of the different parties. They also
need to make a choice. Everybody
needs to take a side.
Ever since 1996, Netanyahu has said
openly that the way to create a permanent
right-wing government in Israel is
to change the elite—not just by working
through politics but by creating new think
tanks, changing the media, changing
culture, all to replace the old secular
Ashkenazi elite with a new, more
Sephardic, religious, right-wing one.
So said the Ashkenazi leader.
Well, that is an irony. But is he succeeding?
For me, this is not a problem. I know
how [the right] feels, OK? I was there.
I was born to parents who were not
accepted by the establishment in the
days when the state of Israel was created.
And those Jews who came from Arab
states were also not accepted. They felt
that the establishment patronized
them. I can understand that feeling.
So giving more attention to Sephardim
and everything—it’s more than OK. It’s
A Conversation With Tzipi Livni
July/August 2016 13
necessary. But what Likud is doing now
is just what was once done to them.
And it’s even more problematic than
that, because they’re trying to delegitimize
those that criticize the government.
Netanyahu is using the resentment of
those who felt patronized by the old
elite to shut the mouths of those who
criticize him.
Is there a significant difference between
what he wants and what his allies, like
Bennett and Shaked and Regev, want?
For Netanyahu, it’s not about ideology.
It’s about using the feelings of those who
were patronized in the past to say, “OK,
now we are taking over, and you will
get our support.”
For the others you mentioned, it is
about ideology. So they and Netanyahu
have different reasons for doing what
they do, but the outcome is the same.
For us, it’s about keeping Israel a
Jewish democratic state. The only way to
do that is by dividing the ancient land of
Israel into two different states. If we fail
to do so, or if we annex the territories,
we will face a clash between Israel as a
democracy and Israel as a Jewish state.
A vast majority of Israelis want to
keep Israel a democracy. If you asked
them, they might say that they are right
wing. But if the next question was,
would you support a two-state solution
with security? they would say yes.
A moment ago, you spoke about the
need to convince voters of the stakes
involved in choosing you instead of the
right. Yet as we speak, the leader of your
own coalition is in talks with the prime
minister about forming a national unity
government. What do you think of this?
My responsibility is to ask, how can I
serve my ideology and my voters? So
the question is, will joining the government
allow us to implement our vision,
or serve Netanyahu’s vision?
To answer that, you have to ask, if
we joined the government, would it be
to create a true unity government or
just a broader coalition for Netanyahu?
Those are two different things. Unity
governments are based on an understanding
among the major parties that
there are things we can agree on and
implement together. This is not what
Netanyahu is proposing. He is talking
about a broader coalition to help him
and his natural partners.
So I’m against it, because it would
betray our voters and what I believe in.
Would you be prepared to leave the
party if it joined the government?
I have my own party.
Then would you leave the Zionist Union,
your coalition with Labor?
I hope that will not happen, but yes.
What’s the use of being in politics if it
means serving someone else’s vision?
You asked me before about Netanyahu,
whether he thinks like the Jewish Home
or he thinks like us. I’d answer by quoting
that old line: “Tell me who your friends
are, and I’ll tell you who you are.”
Let’s return to the peace process. You’ve
spoken in the past about the dangers
of not doing anything to address the
situation. But given the disarray on the
Palestinian side, and the fact that Abu
Mazen’s [Mahmoud Abbas’] days are
numbered, what can be done?
Israel needs to decide which road we
want to take; we need to decide on our
destination. If the destination is Greater
Anger and Hope
14 FOREIGN AFFAIRS
and take steps that would serve their
interests as well?
And we need to work completely
differently with the international community.
We have lost their trust by
speaking about two states but then
acting in ways that serve the vision of
a Greater Israel.
There are certain interests that
nobody in Israel would give up. Security:
a Palestinian state should be demilitarized.
And the major settlement blocs
would become part of Israel.
Is there anyone to negotiate with on
the other side, or does this have to wait
until a new Palestinian leader replaces
Abu Mazen?
I’d prefer to work with them directly.
But if they are not willing, let’s start
working also with the international
community.
Do you see unilateral separation as a last
option, if necessary?
As long as it moves us toward a two-state
solution. We can act with the Palestinians
or without the Palestinians. But
unilateralism would not bring us to the
end of the conflict.
How worried are you about Israel’s
growing isolation?
First, I want to make it clear that nothing
I suggested would be done to appease
the international community. Anything
we do has to be in our own interests.
But by not acting in our own interests,
we are affecting our relations with the
international community. And Israel’s
security is based on its relationship with
the U.S. It’s not a question whether [the
Americans] like us or love us; it’s about
our security. And it’s not just about
Israel, it doesn’t matter whether there’s
a partner on the other side.
But if your destination is a secure
Israel that is Jewish and democratic,
then it can’t be on the entire land. That
is our GPS setting. To get there, we’d
prefer to have an agreement with the
Palestinians, because that is the way to
create a secure border, a demilitarized
Palestinian state, and an end to the
conflict. Because you can’t end the
conflict without their consent.
And if we cannot end the conflict
tomorrow morning, let’s at least start
moving toward our goal. That means
not doing things that take you in the
opposite direction. Netanyahu says his
destination is two states for two peoples.
But he’s going in the other direction.
So what do you propose?
First, we need to win the trust of the
international community and the
Palestinians by saying this is where we
want to go. Not for you, not as a favor
to the United States. But because it’s
in our own interests.
Second, we would stop doing things
that serve the different vision for the
state of Israel.
Such as?
Stop expanding settlements, especially
those outside the fence that are not going
to be part of Israel. Then let’s change
the atmosphere. Let’s show we’re serious.
Let’s give the Palestinians the right to
build in Area C. Let’s see whether these
and other confidence-building measures
can create enough trust to relaunch
negotiations.
And then in the negotiations, we
need to find out what they really want.
Are they willing to end the conflict
A Conversation With Tzipi Livni
July/August 2016 15
understanding. We share the same view
of extreme Islamists, of terrorist organizations,
of Iran.
But the glass ceiling that’s
constraining relations between Israel
and the Arab Sunni world is the IsraeliPalestinian
conflict.
So our strategy should be a dual
strategy: On the one hand, we should
act against the extremists, against Hamas.
But on the other, we need to help those
that are willing to work with us by
making all those gestures I mentioned
earlier. I have had discussions with Arab
League representatives about this. I asked,
“Is this a take-it-or-leave-it deal?” And
they said, “It’s negotiable.” I said, “Great.
Should I negotiate with you?” And they
said, “No. Negotiate with the Palestinians.”
So in the end, it’s all connected.
You sound surprisingly optimistic,
given what’s happening here and in
your neighborhood.
I’m not optimistic, but without hope,
you can’t survive in this swamp called
politics.
I once heard a story about a Western
doctor working in Africa who worked
24/7 with victims of terrible atrocities.
Someone asked him, “Where do you
find the strength to keep doing this night
and day?” “Two words,” he said, “anger
and hope.”
I have both.∂
money or weapons. They also give us
legitimacy to act against terror; they
have their veto on the Security Council.
Somebody recently said to me that
for the United States, Israel is becoming
just another state. That’s not good
news. Netanyahu and others in the
government say that foreign attitudes
have nothing to do with what we do
but are based on who we are: the world
is anti-Semitic, so they will hate us no
matter what we do.
What I would say is that there is
anti-Semitism in the world, but not
everybody is anti-Semitic. And instead
of giving the anti-Semites an opportunity
to further isolate us, let’s isolate them.
Let’s build a wall between them and
those that are criticizing Israel because
of its policies or because they don’t
understand us.
Do you worry that Israel is too dependent
on the United States?
The United States is the anchor. I also
believe that we should have better relations
with Europe; we need to work
with everybody. But the United States
is the anchor.
Looking at all the recent changes in
Israel’s region, do you see other opportunities,
as well as threats? For example,
relations with the Sunni monarchies
have never been better. And the Arab
Peace Initiative is still on the table. Is
that worth exploring?
Yes. The original idea behind Israel
was to take the Jewish people out of a
ghetto and create a sovereign, independent
state. So Israel shouldn’t be a new
ghetto, a big ghetto in the Middle East.
There are opportunities here. We
and the Sunni Arab states share an
16 FOREIGN AFFAIRS
ALUF BENN is Editor in Chief of Haaretz.
Follow him on Twitter @alufbenn.
THESTRUGGLEFORISRAEL
public opinion survey published in March
found that 79 percent of Jewish Israelis
supported “preferential treatment” for
Jews—a thinly veiled euphemism for
discrimination against non-Jews.
Meanwhile, the two-state solution
to the conflict with the Palestinians
has been taken off the table, and Israel
is steadily making its occupation of
East Jerusalem and the West Bank
permanent. Human rights groups and
dissidents who dare criticize the
occupation and expose its abuses are
denounced by officials, and the government
has sought to pass new laws
restricting their activities. Arab-Jewish
relations within the country have hit a
low point, and Israel’s society is breaking
down into its constituent tribes.
Netanyahu thrives on such tribalism,
which serves his lifelong goal of replacing
Israel’s traditional elite with one more
in tune with his philosophy. The origins
of all these changes predate the current
prime minister, however. To truly understand
them, one must look much further
back in Israel’s history: to the country’s
founding, in 1948.
THE OLD MAN AND THE NEW JEW
Modern Israel was created by a group of
secular socialists led by David BenGurion,
who would become the state’s
first prime minister. “The Old Man,”
as he was known, sought to create a
homeland for a new type of Jew: a
warrior-pioneer who would plow the
land with a gun on his back and then
read poetry around a bonfire when the
battle was won. (This “new Jew” was
mythologized, most memorably, by Paul
Newman in the film Exodus.) Although
a civilian, Ben-Gurion was a martial
leader. He oversaw the fledgling state’s
The End of the
Old Israel
How Netanyahu Has
Transformed the Nation
Aluf Benn
I
srael—at least the largely secular
and progressive version of Israel
that once captured the world’s
imagination—is over. Although that
Israel was always in some ways a fantasy,
the myth was at least grounded in
reality. Today that reality has changed,
and the country that has replaced it is
profoundly different from the one its
founders imagined almost 70 years ago.
Since the last elections, in March 2015,
a number of slow-moving trends have
accelerated dramatically. Should they
continue, they could soon render the
country unrecognizable.
Already, the transformation has
been dramatic. Israel’s current leaders—
headed by Prime Minister Benjamin
Netanyahu, who metamorphosed after
the election from a risk-averse conservative
into a right-wing radical—see democracy
as synonymous with unchecked majority
rule and have no patience for restraints
such as judicial review or the protection
of minorities. In their view, Israel is a
Jewish state and a democratic state—in
that order. Only Jews should enjoy full
rights, while gentiles should be treated
with suspicion. Extreme as it sounds,
this belief is now widely held: a Pew
Return to Table of Contents
The End of the Old Israel
July/August 2016 17
victory in its War of Independence
against Israel’s Arab neighbors and the
Palestinians, most of whom were then
exiled. And when the war was over,
the Old Man oversaw the creation of
the Israel Defense Forces (IDF), which
he designed to serve as (among other
things) the new country’s main tool for
turning its polyglot Jewish immigrants
into Hebrew-speaking citizens.
Ben-Gurion was a leftist but not a
liberal. Following independence, he put
Israel’s remaining Arab residents under
martial law (a condition that lasted until
1966) and expropriated much of their
land, which he gave to Jewish communities.
His party, Mapai (the forerunner
of Labor), controlled the economy and
the distribution of jobs. Ben-Gurion and
his cohort were almost all Ashkenazi
(of eastern European origin), and they
discriminated against the Sephardic
Jews (known in Israel as the Mizrahim),
who came from Arab states such as
Iraq, Morocco, Tunisia, and Yemen.
Ben-Gurion also failed to appreciate the
power of religion, which he believed
would wither away when confronted
with secular modernity. He therefore
allowed the Orthodox to preserve their
educational autonomy under the new
state—thereby ensuring and underwriting
the creation of future generations of
religious voters.
For all Ben-Gurion’s flaws, his
achievements were enormous and should
not be underestimated: he created one
of the most developed states in the
postcolonial world, with a world-class
military, including a nuclear deterrent,
and top scientific and technological
institutions. His reliance on the IDF as a
melting pot also worked well, effectively
assimilating great numbers of new
Israelis. This reliance on the military—
along with its battlefield victories in
1948, 1956, and 1967—helped cement
the centrality of the IDF in Israeli society.
To this day, serving in the military’s
more prestigious units is the surest way
to get ahead in the country. The army
has supplied many of the nation’s top
leaders, from Yitzhak Rabin and Ezer
Weizman to Ehud Barak and Ariel Sharon,
and every chief of staff or intelligence
head instantly becomes an unofficial
candidate for high office on retirement.
The first major challenge to BenGurion’s
idea of Israel arrived on Yom
Kippur in 1973, when Egypt and Syria
launched a surprise attack that managed
to catch the IDF unawares. Although Israel
ultimately won the war, it suffered heavy
losses, and the massive intelligence
failure traumatized the nation. Like
the United Kingdom after World War I,
Israel emerged technically victorious
but shorn of its sense of invincibility.
Less than four years later,
Menachem Begin—the founder of
Israel’s right wing—capitalized on this
unhappiness and on Sephardic grievances
to hand Labor its first-ever defeat at
the polls. Taking power at the head of
a new coalition called Likud (Unity),
Begin forged an alliance with Israel’s
religious parties, which felt more at
home with a Sabbath-observing conservative.
To sweeten the deal, his
government accelerated the building
of Jewish settlements in the West Bank
(which appealed to religious Zionists)
and offered numerous concessions to
the ultra-Orthodox, such as generous
educational subsidies.
Begin was a conservative and
nationalist. But the decades he’d spent
in the opposition had taught him to
Aluf Benn
18 FOREIGN AFFAIRS
that could be managed but would never
be resolved. The West—which, in his
view, was anti-Semitic, indifferent, or
both—couldn’t be counted on to help,
and so Israel’s leaders were duty bound
to prevent a second Holocaust through
a combination of smart diplomacy and
military prowess. And they couldn’t
afford to worry about what the rest of
the world thought of them. Indeed, one
of Netanyahu’s main domestic selling
points has always been his willingness
to stand up to established powers,
whether they take the form of the U.S.
president or the UN General Assembly
(where Netanyahu served as Israel’s
representative from 1984 to 1988 and
first caught his nation’s attention).
Netanyahu loves lecturing gentiles in
his perfect English, and much of the
Israeli public loves these performances.
He may go overboard at times—as
when, last October, he suggested that
Adolf Hitler had gotten the idea to kill
Europe’s Jews from Amin al-Husseini,
the grand mufti of Jerusalem during
World War II. Historians of all stripes
scoffed at the claim, but many ordinary
Israelis were indifferent to its inaccuracy.
During his first term, Netanyahu
connected his domestic and international
agendas by blaming the leftism of Israel’s
old elite for the country’s foreign policy
mistakes. To prevent more missteps in
the future, he borrowed a page from the
U.S. conservative playbook and vowed to
fight the groupthink at Israel’s universities
and on its editorial boards—a way of
thinking that, he argued, had led the
country to Oslo. In a 1996 interview
with the Haaretz columnist Ari Shavit,
Netanyahu complained about his delegitimization
“by the nomenklatura of the
old regime,” adding that “the problem
respect dissent and debate. As prime
minister, therefore, he always defended
judicial independence, and he refrained
from purging Labor loyalists from the
top echelons of the civil service and the
IDF. As a consequence, his revolution,
important though it was, was only a
partial one. Under Begin’s leadership,
Israel’s old left-wing elite lost its cabinet
seats. But it preserved much of its
influence, holding on to top positions
in powerful institutions such as the
media and academia. And the Supreme
Court remained stocked with justices
who, while officially nonpartisan,
nevertheless represented a liberal
worldview of human and civil rights.
BIBI’S BAPTISM
Although Likud has governed Israel for
most of the years since then, the left’s
ongoing control over many other facets
of life has given rise to a deep sense of
resentment on the right. No one has
felt that grievance more keenly than
Netanyahu, who long dreamed of finishing
Begin’s incomplete revolution. “Bibi,”
as Netanyahu is known, first won the
premiership in 1996, but it would take
him decades to accomplish his goal.
Netanyahu’s initial election came
shortly after the assassination of Rabin.
The years prior to Rabin’s death had been
dominated by the Oslo peace process
between Israel and the Palestine Liberation
Organization (PLO), and that same
peace process would become the focus
of his successor’s first term as well.
Netanyahu opposed Oslo from the
very beginning. Then as now, he saw
Israel as a Jewish community besieged
by hostile Arabs and Muslims who wanted
to destroy it. He considered the ArabIsraeli
conflict a perpetual fact of life
The End of the Old Israel
July/August 2016 19
Both Barak, a decorated former head
of the IDF, and Sharon, who replaced
Netanyahu at the helm of Likud and
became prime minister himself in 2001,
represented a return to the Ben-Gurion
model of farmer turned soldier turned
statesman. Their ascent thus restored the
old order—at least temporarily—and made
Netanyahu seem like a historical fluke.
A MODERATE MASK
But Netanyahu saw things differently,
and he spent the next decade plotting
his return to power. Following Sharon’s
reelection in 2003, Netanyahu become
finance minister, although he resigned
on the eve of the August 2005 unilateral
pullout from Gaza. When Sharon created
a new centrist party, Kadima (Forward),
shortly after the withdrawal, Netanyahu
took over the remnants of Likud. But
he lost the next election, in March 2006,
is that the intellectual structure of Israeli
society is unbalanced.” He pledged to
create new, more conservative institutions
to rewrite the national narrative.
But Netanyahu’s political inexperience
worked against him. His tenure was
rocked by controversy, from his reckless
provocations of the Palestinians and of
Jordan to a scandal caused by his wife’s
mistreatment of household employees.
Israel’s old elites closed ranks, and, with
the support of the Clinton administration,
they forced Netanyahu into another
deal with the Palestinian leader Yasir
Arafat. The 1998 Wye River memorandum—the
last formal agreement that
Israel and the Palestinians have signed
to this day—triggered early elections in
May 1999, after several small, hard-right
parties abandoned Netanyahu’s coalition
in protest. Barak and the Labor Party
emerged victorious.
AMIRCOHEN/REUTERS
Changing of the guard: Netanyahu at a memorial service for Ben-Gurion, November 2014
Aluf Benn
20 FOREIGN AFFAIRS
firebrand who’d been voted out of office
a decade before, however, and fearing
pressure from the new U.S. president,
Barack Obama, he once again was forced
to shelve his long-term plans for elite
replacement. Instead of undermining
his enemies, he shifted to the center,
recruiting several retired Likud liberals
to vouch for the “new Bibi” and join his
cabinet, and forging a coalition with
Labor under Barak, who stayed on as
defense minister (a job he’d held under
Olmert). Together, Netanyahu and
Barak spent much of the next four years
working on an ultimately unrealized
plan to bomb Iran’s nuclear facilities.
In June 2009, ten days after Obama’s
Cairo address, Netanyahu sought to
reinforce his new centrist credentials
by endorsing the idea of Palestinian
statehood in a speech. True to form,
however, the prime minister imposed a
condition: the Palestinians would first
have to recognize Israel as a Jewish
state. Mahmoud Abbas, the Palestinian
president, instantly rejected the idea.
But the move enhanced Netanyahu’s
moderate credentials anyway.
And it helped get Obama off his
back—but not before the U.S. president
convinced Netanyahu to accept a tenmonth
freeze on new residential construction
in the West Bank settlements.
The freeze was meaningless, however,
since it didn’t change the facts on the
ground or facilitate serious peace talks.
And soon after it expired, Republicans
won control of the House of Representatives
in the U.S. midterm election,
creating a firewall against any further
pressure from Washington. Obama
soon lost interest in the thankless peace
process. Although his rocky relationship
with Netanyahu led to many juicy
to Ehud Olmert, who had replaced the
ailing Sharon as head of Kadima.
Olmert had pledged to follow through
on his mentor’s vision by withdrawing
Israel from most of the West Bank.
But in July, his plans were disrupted
when he let Hezbollah draw him into
a pointless and badly managed war in
Lebanon. His subsequent effort to
negotiate a comprehensive peace deal
with the Palestinians, launched in
Annapolis, Maryland, in late 2007,
led nowhere. Meanwhile, Netanyahu’s
credibility and popularity were boosted
that same year when Hamas, well armed
with rockets, seized control of Gaza—
just as he’d predicted. So when Olmert
announced his resignation over corruption
charges in the summer of 2008 (he
ultimately went to jail earlier this year
on different charges), Netanyahu was
ready to pounce.
His revival was further aided by the
sudden appearance in 2007 of what
would become the most important of
what Netanyahu called independent
sources of thought. Israel Hayom (Israel
Today) is a free daily newspaper owned
by the American casino magnate
Sheldon Adelson, and ever since its
launch, it has provided Netanyahu with
a loud and supportive media megaphone.
By 2010, Israel Hayom had become the
country’s most-read weekday newspaper,
printing 275,000 copies a day. And its
front page has consistently read like
Bibi’s daily message: lauding his favorites,
denouncing his rivals, boasting
about Israel’s achievements, and downplaying
negative news.
With Olmert out of the picture,
Netanyahu returned to office on
March 31, 2009. Eager to prove that
he was no longer the scandal-plagued
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The End of the Old Israel
July/August 2016 21
the incumbent’s experience and savvy,
and after reengaging with his rightwing
base and merging with another
conservative party led by former Foreign
Minister Avigdor Lieberman, Netanyahu
won the election.
In the summer of 2014, following
one last push for peace with Abbas
(this time led by U.S. Secretary of State
John Kerry), war broke out between
Israel and Hamas. The discovery of
dozens of tunnels dug by Hamas into
Egyptian and Israeli territory put
another big scare into the Israeli public
and prompted a prolonged ground
operation—the bloodiest conflict of
the Netanyahu era. During 50 days of
fighting, more than 2,000 Palestinians
and 72 Israelis, mostly soldiers, were
killed. Israel’s Jewish population overwhelmingly
supported the war, but the
fighting caused communal tensions in
the country to explode. Thousands of
Arab Israelis—who identified with the
suffering in Gaza and were tired of
their own abuse by the police and their
increasing marginalization under
Netanyahu—protested against the war.
Hundreds were arrested, and other
Arabs employed in the public sector
were reportedly threatened with firing
after criticizing the conflict on Facebook.
THE NEW RIGHT
Around the same time, personal animosities
within Netanyahu’s coalition
started to pull it apart. Netanyahu was
unable to prevent Israel’s parliament,
the Knesset, from electing Reuven
Rivlin, a longtime Likud rival, to the
largely symbolic presidency. And
several of the prime minister’s erstwhile
allies, including Lieberman, endorsed a
bill that would have forced Israel Hayom
newspaper and magazine stories, it had
little effect on Israel’s internal politics,
since most Israelis also distrusted the
U.S. president, and still do; a global
poll released in December 2015 found
that Obama had a lower favorability
rating in Israel than almost anywhere
else, with only Russians, Palestinians,
and Pakistanis expressing greater
disapproval.
Any remaining pressure on Netanyahu
to pursue peace with the Palestinians
evaporated soon after the Arab Spring
erupted. Hosni Mubarak’s regime in
Egypt collapsed, threatening a cornerstone
of Israel’s security strategy; Syria sank
into a bloody civil war; and a terrifying
new nemesis, the Islamic State (also
known as ISIS), appeared on the scene.
These events unexpectedly bolstered
Israel’s position in several ways: Russia
and the United States ultimately joined
forces to eliminate most of Syria’s chemical
weapons, and the conservative governments
of Jordan, Saudi Arabia, the United
Arab Emirates, and (after the 2013
counterrevolution) Egypt strengthened
their ties with Jerusalem (albeit unofficially
in most cases). But the regional carnage
and turmoil horrified Israeli voters,
who told themselves: if this is what
the Arabs are capable of doing to one
another, imagine what they would do
to us if we gave them the chance.
Nonetheless, peace and security
played an uncharacteristically minor
role in the next election, in January
2013. Instead, the race was dominated
by social issues, including the rapidly
rising costs of housing and food staples
in Israel. Such concerns helped usher
in a new class of freshman politicians,
who replaced old-timers such as Barak.
But none of them was able to overcome
Aluf Benn
22 FOREIGN AFFAIRS
cohesive alliance with several smaller
center- and far-right parties.
Choosing Herzog would have
created a wider coalition and allowed
Netanyahu to show a more moderate
face to the world. But the prime minister,
who was sick of acting like a centrist,
picked the latter course instead. That
left him with a very narrow, one-seat
majority in the Knesset. But it also gave
him his first undiluted hard-right government
since his 2009 comeback—one
that would finally allow him to realize
his long-deferred dream of remaking
Israel’s establishment.
Although Netanyahu is both secular
and Ashkenazi, his new allies are mostly
Mizrahim—long ostracized from Israel’s
centers of power, even though they
represent a large segment of the Jewish
population—and religious Zionists, who
are known for their knitted yarmulkes, are
fiercely committed to (and often live in)
West Bank settlements, and have, in recent
years, come to hold many prominent
positions in the army, the security services,
and the civil service.
These groups are most vocally
represented by three members of the
current government: Likud’s Miri Regev,
the minister of culture; Naftali Bennett,
the minister of education and head of
Habayit Hayehudi (Jewish Home), a
religious Zionist party that he built out of
the ashes of the old National Religious
Party; and Ayelet Shaked, Bennett’s
longtime sidekick and now the minister
of justice. Regev is Sephardic—her family
came to Israel from Morocco—and a
former brigadier general in the IDF,
where she served as chief spokesperson
during the Gaza pullout. Bennett, the
son of American immigrants, served in
the Israeli special forces and then made
to start charging its readers. (The bill
never made it past a preliminary hearing.)
In December, the government finally
collapsed, and the Knesset called an
early election.
Likud went into the 2015 race
trailing in the polls. The public was
angry with Netanyahu over a smalltime
financial scandal involving his
wife and over the stalemated result
of the war with Hamas. The Zionist
Union, a new centrist coalition led by
Labor’s Isaac Herzog, seemed poised
to form the next government. But the
uncharismatic Labor leader proved no
match for his wilier, more experienced
adversary. Netanyahu tacked right—
scoring an unprecedented invitation to
address the U.S. Congress (which he
used to denounce the nuclear deal the
Obama administration was negotiating
with Iran) and stealing votes from smaller
conservative parties by promising not to
allow a Palestinian state to be established
on his watch. Then, on election day, he
released a video in which he claimed that
“Arab voters are heading to the polling
stations in droves. Left-wing NGOs are
bringing them in buses.” The statement
wasn’t true, but it effectively tapped into
Jewish voters’ anxiety and racism and won
Likud the election: Likud emerged with
30 seats; the Zionist Union earned 24.
In Israel’s fractious parliamentary
system, votes alone don’t determine who
takes power, however; that gets decided
during the coalition-building process that
inevitably follows each election. In this
case, the electoral math left Netanyahu,
who was 31 seats short of a majority,
with two choices: he could form a
national unity coalition with Herzog
and the ultra-Orthodox, or he could
forge a narrow but ideologically
The End of the Old Israel
July/August 2016 23
Chekhov and didn’t like classical music—
has sought to give greater prominence to
Sephardic culture and to deprive “less than
patriotic” artists of government subsidies.
Bennett’s ministry has rewritten public
school curricula to emphasize the country’s
Jewish character; it recently introduced a
new high school civics textbook that depicts
Israel’s military history through a religious
Zionist lens and sidelines the role of
its Arab minority. In December 2015,
Bennett even banned Borderlife, a novel
describing a romance between a young
Jewish Israeli woman and a Palestinian
man, from high school reading lists.
Shaked, for her part, has vowed to
reduce judicial interference in the work
of the executive and the Knesset by
appointing more conservative justices
to the Supreme Court next year, when
four to five seats (out of 15) will open
up. She has also made good use of her
position as head of the cabinet committee
on legislation, which decides which
bills the executive will support in the
Knesset. The committee has recently
promoted several draft laws designed
to curb political expression. One, aimed
at non-Zionist Arab legislators, would
allow the Knesset to suspend a member
indefinitely for supporting terrorism,
rejecting Israel’s status as a Jewish state,
or inciting racism. Another, which Shaked
has personally championed, would shame
human rights groups by publicly identifying
those that get more than half their
funding from foreign governments.
(So far, none of these bills, or even more
restrictive measures put forward by Likud
backbenchers—such as one that would
label left-wing nongovernmental organizations
“foreign agents” and another that
would triple the jail sentence for flag
burning—has been passed.)
a fortune as a high-tech entrepreneur.
He is both a model product of the
“start-up nation” and the epitome of
the religious, fiercely nationalist, prosettlement
leader (although he himself
lives comfortably within the Green Line).
Shaked, meanwhile, was a computer
engineer before joining politics; despite
her membership in the Jewish Home,
she is neither religious nor a settler.
Both she and Bennett worked directly
for Netanyahu in Likud a decade ago,
when he was the opposition leader,
but they broke with him over personal
quarrels in 2008.
Like the prime minister, Regev,
Bennett, and Shaked are skilled, mediasavvy
communicators. In keeping with
Israeli tradition, all three have complicated,
“frenemy” relationships with
Netanyahu. Regev climbed the ranks
of Likud without the prime minister’s
sponsorship, and Netanyahu has never
forgiven Bennett and Shaked for their
betrayals; the two are never invited to
join him at his residence or on his
plane. Yet so far, they have not let their
personal grievances block the pursuit
of their shared interests. Netanyahu
needs Bennett and Shaked to keep his
coalition afloat, and he needs Regev to
maintain his support among Sephardic
Israelis, an important Likud constituency.
And there are no real ideological
differences among the four politicians.
Netanyahu is thus happy to let the others
lead the charge against the old guard—
and to take the heat for it as well.
Since taking office last year, the
three ministers have readily obliged
him. Regev—who likes to rail against
what she calls “the haughty left-wing
Ashkenazi elite” and once proudly told
an interviewer that she’d never read
Aluf Benn
24 FOREIGN AFFAIRS
Bank and inside Israel. The first intifada
(1987–93) was characterized by mass
protests and stone throwing; during the
second intifada (2000–2005), organized
Palestinian suicide bombings and largescale
military reprisals by Israel caused
thousands of casualties. This time, the
so-called loners’ intifada has taken a
more privatized form. Acting on their
own, young Palestinian men and women
have used knives and homemade guns
to attack Israeli military and police
checkpoints or civilians at flash points
such as the settlements and Jerusalem’s
Old City. So far, 34 Israelis have died in
these assaults. Almost all the perpetrators
have been arrested or shot on the spot—
to date, about 200 Palestinians have
been killed—but more have kept coming.
The loners’ intifada has presented
the current government with its toughest
test so far. Netanyahu has always claimed
to be tough on terror and has portrayed
his opponents as softies. Yet he and his
top aides have seemed clueless in the
face of the rising violence. Instead of
stanching the bloodshed, they have
redoubled their attacks on those they
deem enemies within: human rights
groups and Arab Israeli politicians. And
the center-left parties, worried about
looking unpatriotic, have gone along
with him. In April, Herzog urged Labor
to “stop giving the impression that we
are always Arab-lovers.” And Yair
Lapid, the head of the opposition Yesh
Atid (There’s a Future) party—another
centrist faction—has called on the army
and the police to ease their rules of
engagement and “shoot to kill whoever
takes out a knife or a screwdriver or
whatever.” Highlighting the danger of
such rhetoric, in late March, B’Tselem,
a respected human rights group,
Meanwhile, Netanyahu is doing his
part as well. After last year’s election,
he insisted on holding on to the communications
portfolio himself, giving
him the last word on any media-related
legislation. This move has given him
unprecedented leverage over Israel’s
television and telecommunications
networks, which have grown leery of
doing anything to alienate the prime
minister.
Many of the government’s recent
actions, such as Regev’s promotion of
Sephardic culture, seem designed to
address the traditional disenfranchisement
of Israel’s Mizrahim and citizens
living in the country’s “periphery”
(that is, far from the central Tel Aviv–
Jerusalem corridor). Other measures
are aimed at promoting social mobility.
Yet virtually all of them have had a clear
political goal as well: to reduce, if not
eliminate, the domestic opposition to
Israel’s occupation of the West Bank,
which Netanyahu and his allies want
to make permanent. By portraying the
shrinking peace camp and its supporters
as unpatriotic stooges of foreign antiSemites,
the government hopes to
delegitimize them and build a consensus
around its hard-right policies.
The strategy seems to be working.
One example: in a poll conducted last
December of Israeli Jews, 53 percent of
those surveyed supported outlawing
Breaking the Silence, a veterans’ group
that aims to expose the harsh realities
of the occupation by publishing wrenching
testimonials of soldiers who have
served in the West Bank.
DAGGERS DRAWN
Late last summer, after years of relative
quiet, violence erupted in the West
25
released a video taken in Hebron
showing an Israeli soldier executing a
Palestinian suspect who had already
been shot and was lying, bleeding, on
the street.
Instead of remorse, the Hebron
shooting unleashed a wave of ugly
nationalism among many Israeli Jews.
The military high command quickly
detained the soldier and declared his
action immoral, unlawful, and undisciplined.
Yet in a public opinion poll
conducted several days after the incident,
68 percent of respondents supported
the shooting, and 57 percent
said that the soldier should not face
criminal prosecution. Far-right politicians,
including Bennett, defended the killer,
and Netanyahu, who had initially supported
the military brass, quickly closed
ranks with his right-wing rivals and
called the shooter’s parents to express
his support. When Moshe Yaalon, the
defense minister, nonetheless insisted
on a criminal investigation, he was
roundly attacked on social media for his
stand. After Netanyahu seemed to side
with Yaalon’s critics, their quarrel
escalated, and in May, Yaalon resigned.
Announcing his decision, Yaalon
remarked, “I fought with all my might
against manifestations of extremism,
violence, and racism in Israeli society,
which are threatening its sturdiness and
also trickling into the IDF, hurting it.”
That Yaalon of all people could be
subjected to such treatment shows just
how much Israel has changed in recent
years. A Likud leader and former IDF
chief of staff, Yaalon is no leftist: he
supported Oslo but later changed his
mind when, as the head of military
intelligence, he witnessed Arafat’s
duplicity firsthand. Yet Yaalon believes
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Available at Amazon, BN.com, and Google Play
“a vibrant, first hand description
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Rudel describes his unique experiences
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(Iran Turkey, India) during some of the
most dramatic international events since
World War II.
The Association for Diplomatic Studies
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Aluf Benn
26 FOREIGN AFFAIRS
Olmert’s foreign minister and his
successor as the head of Kadima,
actually beat Netanyahu’s Likud in the
2009 election, winning 28 seats to
Likud’s 27. But she was unable to build
a large enough coalition to form the
next government, and her subsequent
weakness as opposition leader damaged
her popular appeal.
Bennett is now trying to position
himself as a younger and more populist
version of his one-time mentor. There’s
no doubt that Bennett is charismatic
and has grown quite popular. But he
leads a small party with a limited base
that cannot win an election unless it
unites with Likud. Nir Barkat, the rightwing
mayor of Jerusalem, is another
former high-tech entrepreneur who
harbors national aspirations. But he
lacks charisma and remains unknown
to the public outside Israel’s capital city.
Netanyahu’s strongest current
challenger is probably Lapid, the former
columnist and TV anchor who established
Yesh Atid as a centrist party in 2012 and
won a spectacular victory in 2013, earning
Yesh Atid the second-highest number
of seats in the Knesset. Lapid joined
Netanyahu’s cabinet after he and Bennett
forced the prime minister to drop the
ultra-Orthodox parties. But Netanyahu
soon outmaneuvered him, pushing
Lapid to the Treasury—a well-established
graveyard for ambitious politicians, since
it often involves making unpopular
moves such as raising taxes and cutting
benefits. Lapid accomplished little while
in office, and in 2015, after a tough fight
with Herzog and his Zionist Union over
the same voters, Yesh Atid lost almost
half its seats. Since then, Lapid has
improved his public standing—popularity
polls now put Yesh Atid second, after
in the importance of a secular state and
the rule of law. That marked him as one
of the last of the Ben-Gurion-style old
guard still in office. And those credentials
were enough to incite the online
mob. It didn’t matter that he had an
impressive military record, opposed the
peace process, or supported settlement
expansion. In Netanyahu’s Israel,
merely insisting on due process for a
well-documented crime is now enough
to win you the enmity of the new elite
and its backers.
THE PERMANENT PRIME MINISTER
One of the ways Netanyahu has retained
power for so long—he’s now Israel’s
second-longest-serving leader, after
Ben-Gurion—has been by tailoring
his politics to match public opinion.
In 2009, he leaned toward the center
because he feared Obama and wanted
to dispel his own reputation for recklessness.
In recent years, as the Israeli
public has shifted rightward, so has
he—which has allowed him to more
openly indulge his true passions.
Throughout this period, Netanyahu
has benefited from one other key asset:
the lack of any serious challenger, either
inside or outside Likud. Since returning
to power in 2009, he has consistently
beaten all other plausible candidates
for prime minister in public opinion
polls—by large margins. Within Likud,
Netanyahu has managed to sideline a
series of aspirants, such as Moshe
Kahlon, Gideon Saar, and Silvan
Shalom. And the opposition has failed
to produce a credible alternative of its
own. After leaving office in 2001, Barak
undermined his standing by adopting a
lavish lifestyle deemed unseemly for a
Labor leader. Meanwhile, Tzipi Livni,
The End of the Old Israel
July/August 2016 27
Supreme Court and more religious
Zionists to key government and
academic positions. They will maintain
their support for Mizrahi culture and
West Bank settlements, will impose
more restrictions on left-wing organizations,
and will work to increase
tensions with Israel’s Arabs.
Regardless of who wins the next
election, at least some of these changes
seem likely to become permanent. The
country has already become far less
tolerant and open to debate than it used
to be. The peace camp has withered,
and very few really challenge the status
of the occupation anymore. Arab-Jewish
relations are so bad that they would
take outstanding leadership and enormous
effort to fix. And the United States’
retrenchment has strengthened the
sense among many Israelis that they can
go it alone and no longer need to worry
about pleasing Washington. It’s hard to
see how a new Israeli prime minister—
or a new U.S. president—will be able to
reverse many of these shifts.∂
Likud—by appearing to be more
religiously observant and by talking
tough on terror. Lapid is a moderate
(he supports a Palestinian state and
opposes the expansion of remote West
Bank settlements), is an excellent communicator,
and is an astute reader of public
sentiment. But he is hypersensitive—
he tends to overreact when criticized—
and he lacks security experience, a
huge impediment in Israel.
None of this means that Netanyahu
is invulnerable, however. In March,
Haaretz published a poll showing that
a new, imaginary centrist party led by
Gabi Ashkenazi (a popular former IDF
chief of staff), Kahlon, and Saar would
beat Likud in an election held tomorrow.
But unless its coalition crumbles,
the government doesn’t need to call a
new election until November 2019, and
the nonexistent party remains a fantasy.
In the meantime, Netanyahu continues
to maneuver. He has tried to entice the
smaller right-wing parties into forming
a new, broader party with Likud (so far,
none of them has shown much interest).
And this past spring, he held negotiations
with Herzog over the formation of
a unity coalition, only to back off at the
last moment and offer his former ally
Lieberman the post of defense minister.
With Lieberman inside the government,
the ruling coalition—more right-wing
than ever—would get an expanded
parliamentary base and more room to
breathe.
Until the next election does come
around, Netanyahu’s government
will keep trying to cement as many
changes as possible to Israeli society
and the Israeli establishment. The prime
minister and his allies will push to
appoint more conservatives to the
28 FOREIGN AFFAIRS
ROBERT M. DANIN is Senior Fellow for
Middle East Studies at the Council on Foreign
Relations and a Senior Fellow at the Belfer
Center at Harvard University’s Kennedy School.
Follow him on Twitter @robertdanin.
THESTRUGGLEFORISRAEL
Now, however, it is Israeli civilians,
not soldiers, who are the primary
targets of Israel’s enemies. They are
vulnerable to rockets fired by Hamas
from Gaza and by Hezbollah from
Lebanon, which have killed over 100
Israelis since 2004. And in the past
year, new forms of violence have
emerged, as Palestinians have targeted
Israelis in over 150 seemingly uncoordinated
stabbings and more than 50
attacks in which drivers have intentionally
rammed pedestrians with their
cars. Israel’s citizens feel more vulnerable
in a personal sense, walking their
streets, than they have since perhaps
the 1948 War of Independence. Even
during the second intifada, the Palestinian
revolt that lasted from 2000
until 2005 and claimed the lives of
more than 1,000 Israeli civilians, Jews
believed they knew where it was safe to
go and where it wasn’t. That’s not true
today: in a recent poll conducted by the
Israel Democracy Institute, nearly 70
percent of Israeli Jews surveyed said
they greatly or moderately feared that
they or people close to them would be
harmed by the wave of violence that
has swept the country since last October.
Meanwhile, chaos appears to loom
across almost every border. A bloody
and devastating civil war rages in Syria,
where the regime of Bashar al-Assad
and the jihadists of the Islamic State
(also known as ISIS) seem intent on
outdoing each other in brutality. Neighboring
Jordan has long served as a
buffer of sorts to Israel’s east, but it is
now struggling under the burden of
hosting more than a million Syrian
refugees. And ISIS and other jihadist
organizations roam the virtual no man’s
land of the Sinai Peninsula, which the
Israel Among
the Nations
How to Make the Most of
Uncertain Times
Robert M. Danin
I
n 1996, Ehud Barak, who was then
Israel’s foreign minister and would
later serve as prime minister, characterized
Israel as “a modern and prosperous
villa in the middle of the jungle.”
Twenty years later, as political turmoil
and violence engulf the Middle East,
that harsh metaphor captures better
than ever the way most Israelis see their
country and its place in the region.
Their standard of living has never been
higher. Their country’s economy is
robust, and Israel’s entrepreneurial
spirit remains the envy of the world. In
2015, Israel ranked as the planet’s
fifth-happiest country on the Organization
for Economic Cooperation and
Development’s Better Life Index,
topped only by Denmark, Finland,
Iceland, and Switzerland. In its first
half century of existence, Israeli soldiers
fought a war virtually every decade
against well-armed conventional Arab
armies. Today, the threat of such a war
has vastly diminished, and the Israeli
military has never been stronger,
both in absolute terms and relative to
its neighbors.
Return to Table of Contents
Israel Among the Nations
July/August 2016 29
somewhat wobbly Egyptian government
has struggled to secure.
Confronted with threats at home
and disorder all around, many Israelis
have come to feel that the idealistic
aspirations of earlier eras—all those
dreams of peaceful coexistence with
the Palestinians and with the greater
Arab world—were naive at best and
profoundly misplaced at worst. A sense
of bitterness, resignation, and hopelessness
now prevails. Many Israeli
politicians seem to see greater advantage
in stoking, rather than countering, such
sentiments. For example, rather than
point to the benefits that peace agreements
and negotiated territorial concessions
have produced, Israeli Prime Minister
Benjamin Netanyahu emphasizes how
other territorial withdrawals—ones that
were unilateral and unaccompanied by
peace agreements—have resulted in
further attacks against Israel.
Yet inside Israel’s defense establishment,
headquartered at the Kirya military
complex in Tel Aviv, the picture is
more nuanced. Israel’s security chiefs
share their compatriots’ sense that the
Middle East has become chaotic and
that today’s threats are more diffuse
and inchoate than those Israel used to
face. But these officials also recognize
that their country is far from defenseless
and that the threat of a conventional
conflict has virtually disappeared. As
the army’s recently leaked National
Intelligence Estimate for 2016 concluded,
Israel faces no current threat of war
and only a low probability of war in
the coming year. In fact, the analysts
who prepared the document argue
that the turmoil sweeping the Middle
East may even have improved Israel’s
strategic position.
The disconnect between public
attitudes, political rhetoric, and military
risk assessments reflects a kind of sensory
overload. Israeli strategic planners can
agree on a long list of threats and challenges
but not on how to prioritize
them. Like Israel’s political leaders, they
suffer from a deep sense of strategic confusion.
So far, their response has been
to hunker down and ride out the
turbulence. That is a natural reaction.
But it’s also a risky one, which could
lead Israel to forgo the kind of subtle,
clever approaches it has adopted in the
past when faced with complex threats.
For all the danger Israel faces today,
the current turmoil has also created real
opportunities for Israel to improve its
strategic position. But these will come
to naught unless the government can
see them clearly—and find the strength
to take advantage of them.
FRIENDS OLD AND NEW
Although the chaos and violence
currently tearing apart the Middle East
is deeply unsettling, the changes that
have swept the region in recent years
have actually led to a closer alignment
and stronger relations between Israel
and its only official partners in the Arab
world, Egypt and Jordan. The peace
treaty that Egypt and Israel signed in
1979 removed Israel’s single largest
military threat and effectively ended
the era of all-out war between the Arabs
and the Israelis. It remains one of the
most important contributors to Israel’s
security, since it ensures that the country
will not be attacked by multiple armies
on multiple fronts simultaneously, as it
was in 1948, 1967, and 1973. Despite the
tumult of the 2010–11 Arab uprisings,
including an Egyptian revolution that
Robert M. Danin
30 FOREIGN AFFAIRS
the 1950s, when it established warm
ties with important non-Arab states
on the outer edges of the Middle East,
such as Ethiopia, Iran, and Turkey.
Since Israel’s strategic relationship with
Turkey broke down in 2010, Israel has
forged new partnerships with Cyprus
and Greece, both bitter foes of the
Turkish government. Israel has also
developed closer ties with a number of
African countries, which has allowed it
to increase its influence on the continent
and to interdict arms flows to
militants in the Sinai and Gaza. And
India—which, as a leader of the NonAligned
Movement, once kept Israel at
arm’s length—has developed extensive
commercial, military, and diplomatic
ties with the Jewish state in recent years.
Relations with Russia have also
improved markedly: indeed, Netanyahu
and Russian President Vladimir Putin
clearly enjoy a better relationship with
each other than either does with U.S.
President Barack Obama. Washington
and Moscow have argued viciously over
the civil war in Syria; Israel, in contrast,
appears to have established some clear
rules of the road with Russia for operations
there. According to press reports,
Russia even temporarily transferred
some military officers to Israel’s military
headquarters in Tel Aviv in order to
improve coordination and prevent accidental
clashes in the skies above Syria.
UNCLEAR AND PRESENT DANGERS
Despite such gains, Israel still faces
many threats and potential dangers,
and the country’s leaders can’t seem to
agree on which are most pressing.
President Reuven Rivlin, currently
one of the country’s most popular and
widely respected officials, recently
briefly brought the anti-Zionist Muslim
Brotherhood to power, the peace treaty
has proved durable and critical for both
countries. Even the Islamist Egyptian
president Mohamed Morsi acknowledged
the treaty’s importance and never
sought to challenge or abrogate it. When
the military deposed Morsi in July 2013,
Egyptian-Israeli ties grew stronger than
ever, with both sides firmly aligning
against Hamas in Gaza, which is sandwiched
between them. Egyptian and
Israeli national security interests have
converged to such a degree that in 2014,
when Hamas rocket attacks provoked an
intense 50-day Israeli military campaign
in Gaza, Egypt clearly sided with Israel
and even waved off U.S. efforts to bring
an early halt to the fighting.
In the post–Arab Spring period,
Israel has also drawn closer to Jordan,
the country with which it shares its
longest border. The open cooperation
facilitated by the peace treaty that the
two countries signed in 1994 has proved
crucial to Israel’s domestic and regional
security interests. Jordan has played an
instrumental role in helping defuse
tensions at the Jerusalem holy site known
to Muslims as Haram al-Sharif, or the
Noble Sanctuary, and to Jews as the
Temple Mount. Jordan is also helping
absorb some spillover from the unrest
roiling Iraq and Syria. Security cooperation
between Israel and Jordan is
flourishing, particularly since both share
a common interest in securing Jordan’s
border with Syria and in countering
Islamists across the region.
Farther afield, Israel has also made
some new friends and strengthened ties
with old ones. In a sense, it has developed
a new version of the “periphery
doctrine” that the country pursued in
Israel Among the Nations
July/August 2016 31
Yet underneath this general consensus,
Israeli leaders don’t agree on the precise
nature of the danger Iran represents. In
recent years, Netanyahu has warned that
Iran (or at least a nuclear-armed Iran)
could constitute an “existential threat” to
Israel. Yet that formulation has been
vigorously disputed even by other
security hawks, such as Barak—despite
the fact that Barak reportedly advocated a
military strike on Iran’s nuclear facilities
as recently as 2012. To them, a nucleararmed
Iran would represent an intolerable
threat but not an existential one.
Netanyahu continues to object to
the deal Iran struck last year with the
United States and other major powers
that requires Iran to significantly curtail
its nuclear program in exchange for
relief from international sanctions. Yet
many of Israel’s security professionals
have adopted the view that the agreement,
although flawed, has pushed the Islamic
suggested that ISIS might be the greatest
present danger. Yet few in Israel’s defense
establishment—which comprises Israel’s
military, intelligence, and national security
agencies—agree with that position. They
largely see ISIS as an indirect problem,
one that represents a bigger threat to
regional stability and the viability of
Israel’s neighbors than it does to the
country’s own security.
The more direct and urgent danger,
most believe, comes from Iran and its
two main militant allies: Hamas and
Hezbollah. Indeed, in January, then
Defense Minister Moshe Yaalon declared
that he would rather face ISIS in the
Golan Heights than see Iranian troops or
their proxies occupy that area. Israeli
leaders see Iran as a rising revisionist
power and have watched nervously as it
has built significant influence, if not
quite dominance, in Iraq, Lebanon, Syria,
and Yemen.
BAZRATNER/REUTERS
The Over-Promised Land: at the beach in Tel Aviv, December 2014
Robert M. Danin
32 FOREIGN AFFAIRS
Israel’s lack of complete independence
was demonstrated most dramatically
during the standoff between Netanyahu
and Obama over Iran. Israel had mobilized
its formidable military and intelligence
resources to prevent Iran from
developing a nuclear breakout capacity.
Even as the United States and other
great powers initiated talks with Iran,
Israel’s air force stepped up its training,
and its officials began planning a preventive
attack. But faced with stiff opposition
from the Obama administration, Israel’s
government ultimately stood down.
Israel had been deterred—not by Tehran
but by Washington.
Still, that episode has created little
if any new distance between the two
allies; on the contrary, the Israelis have
sought to move even deeper into the
American embrace. Despite the sour
personal relations between Netanyahu
and Obama, their two countries are
now negotiating a new ten-year military
assistance program that will replace and
expand an expiring agreement that has
ensured over $3 billion in annual U.S.
military assistance for the past decade.
And it is almost certain that whoever
moves into the White House next year
will seek to improve U.S. relations
with Netanyahu’s government.
A FORMAL ALLIANCE
Improving relations with Washington
and perhaps changing the structure of
the U.S.-Israeli relationship represent
one of the best ways for Israel to take
advantage of this uncertain moment—
not by merely seeking a return to the
state of affairs before Obama but by
forging an even stronger bond with the
United States. Israelis regularly refer to
the Americans as allies. Yet the United
Republic further away from acquiring
a bomb—even further, perhaps, than
an Israeli military strike would have.
They believe that Tehran has significantly
reduced its stockpile of enriched
uranium and the number of centrifuges
it operates and that Iran’s ability to
produce plutonium has been eliminated,
for the time being.
Still, virtually all Israeli officials
view Iran as implacably hostile and
expansionist. And Israel has taken it
upon itself to act as the most stringent
international monitor of Iran’s compliance
with the nuclear agreement, vigilantly
pointing out every infraction.
But Israel is struggling to determine
what, if anything, to do with the additional
time—somewhere between five
and 15 years—that the nuclear agreement
with Iran has put on the clock.
YOU’LL NEVER WALK ALONE
For many decades, Israel enjoyed a high
degree of freedom when considering
how to respond to the various threats it
faced. David Ben-Gurion, the country’s
founding father, pursued a delicate
strategy of “nonidentification,” courting
support from global powers but avoiding
the constraints of formal alliances. Today,
Israelis still ferociously cling to this idea
of independence and to the need for
the country to be able to “defend itself,
by itself,” as the popular phrase goes.
Yet the reality has long since shifted.
Like other medium-size powers, Israel
cannot match every possible threat by
itself. Most Israelis recognize that truth,
and the state has grown increasingly
dependent on its only reliable friend,
the United States, with which it has
developed a de facto strategic partnership
over the last 30 years or so.
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Israel Among the Nations
July/August 2016 33
would still allow Israel to maintain its
commitment to not ask for American
boots on the ground.
An alliance would offer significant
benefits to Israel. First and foremost,
it would provide an ironclad security
guarantee: any attack on Israel would
be met and rebuffed by the United States.
During the Iran imbroglio, Obama
repeatedly pledged that the United
States “will always have Israel’s back.”
But he never specifically, publicly promised
to protect Israel against an Iranian
attack. A treaty with Washington would
ensure a lasting commitment of exactly
that kind.
A formal alliance would also allow
the Israelis to stop worrying, as they
frequently do, about the contingent
nature of their partnership with the
United States. How much longer, they
wonder, can Jerusalem safely rely on
Washington to maintain their informal,
quasi alliance? Many Israelis worry that
the two countries will drift further apart
as each undergoes demographic, political,
and social changes.This may be happening
already. A poll recently conducted by
the Pew Research Center indicated that
each U.S. generation is less sympathetic
toward Israel than its predecessor. There
is no guarantee that the strong pro-Israel
consensus that has long been a bipartisan
feature of U.S. politics will endure
forever. Now is therefore the time for
Israel to lock in the existing benefits
of its relationship with Washington.
TAKE THE INITIATIVE
Closer to home, a second extremely
important opportunity for Israel to
consider involves its relationships with
a number of Arab states that have historically
wanted nothing to do with it. In
States and Israel have no formal,
treaty-based alliance. There have been
times when Israel seriously contemplated
pushing for such an arrangement. But
in each instance, it decided against doing
so, fearing that the price Washington
would likely demand—territorial concessions
to the Arabs—would prove too high.
Today, Israel’s ambivalence stems
from different factors. First, the Israelis
fear that an alliance with the United
States would force them to relinquish
even more of their military independence,
potentially preventing them from
conducting certain military actions, ones
along the lines of the 2007 Israeli air
strike against an incipient Syrian nuclear
facility, which the Israelis undertook
after extensive consultations with the
United States but without American
participation. An alliance would also
challenge the idea of Israeli self-reliance,
which is central to the country’s defining
ethos.
But as the dispute over Iran’s nuclear
program showed, when push comes to
shove, Israel is already willing to constrain
itself and accept a high level of dependence
in order to protect its close relationship
with the United States. And
other U.S. allies, such as Turkey, have
initiated military actions when they
believed their national interests were
threatened, regardless of Washington’s
views. A formal U.S.-Israeli alliance,
therefore, would not necessarily have a
significant practical effect on Israeli
freedom of maneuver. Israel’s other
major reservation regarding an alliance
stems from a belief that the United
States backs Israel partly because the
Americans know that the Israelis will
never ask U.S. soldiers to fight on
Israel’s behalf. But a formal alliance
Robert M. Danin
34 FOREIGN AFFAIRS
to trade territory for peace, and took
every opportunity to portray the Arabs
as inexorably hostile and belligerent.
But the Arab wall of rejection
cracked a decade later, when Egyptian
President Anwar al-Sadat traveled to
Jerusalem and made peace. And the
wall arguably crumbled altogether in
2002, when the Arab League collectively
endorsed a proposal put forward
by Saudi Crown Prince Abdullah (who
was king from 2005 until his death last
year) that offered Israel the prospect of
peace, security, and normal relations
in exchange for a complete Israeli
withdrawal to the pre-1967 borders, a
move the Arab states see as the only
way to begin resolving the IsraeliPalestinian
conflict.
The Israelis had ample cause for
skepticism. First, the timing was poor.
One day prior to the Arab League’s
endorsement of the plan, Israel suffered
a massive terrorist attack in which 30
Israelis in the coastal city of Netanya
were killed at a Passover Seder; the
bloodshed left the country in no mood
to negotiate with its enemies. More
substantively, the Israelis doubted that
the Arabs could ever be flexible enough
on their demand for a “right of return”
for Palestinian refugees. And the Israelis
also believed that the Arabs were only
pretending to reach out to them in order
to curry favor with Washington so as to
gain leverage in the run-up to an anticipated
U.S. invasion of Iraq, which the
Arab states opposed.
But the Arab Peace Initiative has
proved to be more than a tactical ploy:
for the past 14 years, the Arab League
has stood by it, even in the face of
intense public anger in the Arab and
wider Muslim world over Israel’s
ways unforeseen and largely unintended,
Obama may have made a greater contribution
to improving these relationships
than he ever thought possible. His efforts
to pivot the United States away from
the Middle East while negotiating with
Iran highlighted a number of interests
that Israel shares with the Sunni Arab
countries—the very same states Israel
battled ferociously during the first
50 years of its existence.
In the last decade, the centuriesold
Sunni-Shiite divide has grown
into a chasm, fueled by—and, in turn,
fueling—the rivalry between the Sunni
Arab powers and an Iranian-led Shiite
bloc. The sectarian split has replaced
the region’s traditional fault line—the
Arab-Israeli conflict—and has begun to
reorder the Middle East in surprising
ways. Israel and the Sunni Arab states
now more clearly share a chief foe, in
Iran, and a sense of concern over U.S.
retrenchment.
Israel should leverage this change to
shape a better future for itself among its
neighbors. Some Israelis worry that the
Sunni Arab states may be too unstable
or unreliable to act as partners. But Israel
should seize on their sense of weakness
and their openness to explore a formal
peace initiative.
In September 1967, following the
Arabs’ devastating defeat in the SixDay
War—during which Israel captured
all of Jerusalem and the west bank of
the Jordan River—the Arab League
convened in Khartoum, Sudan, and
issued its now-infamous declaration
of what came to be known as “the three
no’s”: no peace with Israel, no recognition
of Israel, and no negotiations with
Israel. Israel responded by casting
itself as the reasonable party, willing
Israel Among the Nations
July/August 2016 35
the chaos and instability plaguing the
region, it’s not even clear how long the
current Sunni Arab governments will
stay in power: Why negotiate with
them when they are so weak? Critics
also point out that the Palestinians
seem unwilling or unable to conclude
a deal—so why give them a veto over
Israel’s regional relations? The answer is
that talking with the Arabs might have
strategic benefits even if it fails to unlock
the stalemate with the Palestinians. Better
contacts between Israel and the Sunni
Arab states, particularly Saudi Arabia,
could help forge a more united front
against Iran. Israel could test the Arab
plan’s sincerity and in doing so open up
a channel to the broader Arab world by
expressing a desire to negotiate with
Saudi Arabia and other Arab League
states, while maintaining certain Israeli
reservations about some of the plan’s
elements. As one senior Israeli official
recently told me, “Never before have we
been offered so much while being asked
for so little in return.”
NOTHING VENTURED . . .
If Israel prefers not to deal with the Arab
Peace Initiative, then it should consider
offering up its own regional peace initiative,
which Netanyahu has declined to
do. Many Israelis, even within the prime
minister’s camp, have been frustrated
by their leader’s passivity on this front.
Indeed, Netanyahu’s tenure has been
defined not by right-wing extremism, as
many of Israel’s detractors claim, but by
risk aversion. In his more than seven
years in power, Netanyahu has neglected
to articulate a vision—much less offer a
clear plan—for how Israel could achieve
peace and consolidate its security and
economic gains. Given the narrow rightmilitary
actions in Lebanon and Gaza.
On the “right of return,” the Arabs have
called for “a just and agreed solution,”
suggesting there may be some room for
flexibility. And in 2013, the league even
made modifications to the plan to make
it more attractive to Israel: for example,
the proposal now incorporates the notion
of negotiated land swaps between Israel
and the Palestinians, which shows that
it is not a take-it-or-leave-it proposal.
Emissaries from Egypt and Jordan have
traveled to Israel on behalf of the Arab
League to allay Israeli apprehensions.
Prince Turki al-Faisal, a former head of
Saudi intelligence and former ambassador
to the United States, has met publicly
with prominent Israelis and reached out
to the Israeli public through interviews
with various Israeli media outlets.
Throughout, however, Turki has made
it clear that there can be no progress in
broader Arab-Israeli relations without
addressing the Palestinian issue.
The Israeli government has yet to offer
an official response to the plan, and Israel’s
leaders have essentially ignored it. There
have been a few exceptions: Dan Meridor,
a former Likud deputy prime minister,
and Yair Lapid, who leads the center-right
party Yesh Atid, have both supported the
idea of considering the Arab initiative
under certain conditions. And a number
of former chiefs of the Mossad, the
Israeli foreign intelligence service,
including Danny Yatom and Meir Dagan,
have decried Israel’s lack of a positive
response. But for the most part, the Arab
plan has been met with Israeli silence.
After decades of bemoaning Arab rejectionism,
Israel now finds itself branded
the rejectionist party itself—by the Arabs.
The staunchest Israeli critics of the
Arab Peace Initiative argue that given
Robert M. Danin
36 FOREIGN AFFAIRS
mobilizing international boycotts of
Israeli goods and scholarship.
By outlining a plan for peace now,
precisely when the Middle East is
experiencing unrest and turmoil, Israel
has an opportunity to explore the
possibility of new relationships in its
neighborhood and better ones in the rest
of the world. Israel ought to apply to its
foreign relations the same innovative,
entrepreneurial spirit that has allowed
the country to thrive in the technological
and military realms. Laying out a vision
would not imply a naive denial of harsh
realities. Instead, Israel would improve
its standing by deciding, after many
years of inaction, to simply try.∂
wing base on which his government
rests, Netanyahu is understandably
reluctant to hint at the types of concessions
he would be prepared to make for
peace. But in adopting a wait-and-see
attitude toward the political changes
that are roiling the Middle East, Israel
is forfeiting a chance to help set the
international agenda in a way that would
be favorable to it.
Every previous Israeli prime minister
has recognized that when it comes to
statecraft, Israel can play either offense
(initiating peace negotiations on its own
terms) or defense (resisting attempts
by its friends and adversaries alike to
force it to the table on terms Israel
dislikes). Offense—taking the battle to
its adversaries—is far more consonant
with the traditional Israeli political ethos.
Israel would gain considerable support
from its friends and allies by outlining a
vision for peace and an approach toward
realizing it. And the country will continue
to pay a price if it fails to do so.
Israelis rightly point out that their
conflict with the Arabs no longer defines
the region’s politics. But that condition
will not last forever: an almost inevitable
future outbreak of violence in Gaza,
the West Bank, or Lebanon will surely
return the world’s attention to Israel,
and the major powers will once again
call on it to try to make concessions.
What is more, while Israel sits on its
hands, the other parties to the conflict
are pushing forward with their own
agendas. Israel’s friends, including the
United States, are weighing plans to
propose new peace efforts before the
end of this year. Meanwhile, Palestinian
officials are seeking new ways to confront
or isolate Israel, by gaining ever more
official recognition at the UN and by
July/August 2016 37
AS’AD GHANEM is Associate Professor of
Comparative Politics at the University of Haifa.
THESTRUGGLEFORISRAEL
join forces with the Israeli left to push
for equality on the national stage. The
other urges Arabs to withdraw from
national politics altogether, creating
autonomous cultural, educational, and
political institutions instead. At the
moment, Arab political leaders seem
to favor the former approach. But the
best strategy would be for Arabs to
synthesize these competing visions
into a unified program: one that calls
on the Israeli government to integrate
Israel’s Arab citizens into existing
political structures even as it demands
greater autonomy in such areas as educational
and cultural policy. The goal
would be a system that grants Jews and
Arabs equality in shared institutions
and protects the rights of both to shape
their own communities.
LEFT OUT AND MOVING UP
Israel’s Arab citizens are the descendants
of the approximately 150,000 Palestinians
who stayed in the country following
the expulsion of the majority of their
brethren around the time of Israel’s
establishment in 1948. Over the two
decades that followed, Israel’s remaining
Arabs suffered from high rates of
poverty and low standards of living,
had few opportunities for education,
and were governed by martial law, which
imposed various restrictions on them,
from limitations on domestic and international
travel to constraints on setting
up new businesses. To prevent the
emergence of independent Arab centers
of power, the Israeli government also
closely supervised the activity of Arab
municipal and religious institutions
and arrested many Arab activists.
Since 1966, when martial law was
lifted, the situation of Arab citizens has
Israel’s SecondClass
Citizens
Arabs in Israel and the
Struggle for Equal Rights
As’ad Ghanem
W
hen the world focuses on the
Arab-Israeli crisis today,
the plight of the 4.6 million
Palestinians living in the Gaza Strip
and the West Bank gets most of the
attention. But another pressing question
haunts Israeli politics: the status and
future of Israel’s own Arab citizens,
who number around 1.7 million and
make up around 21 percent of its population.
Over the past few decades, Arabs
in Israel have steadily improved their
economic lot and strengthened their
civil society, securing a prominent place
in the country’s politics in the process. But
since 2009, when Benjamin Netanyahu
began his second term as prime minister,
they have also seen their rights erode,
as the government has taken a number
of steps to disenfranchise them. Israeli
policymakers have long defined their state
as both Jewish and democratic, but these
recent actions have shown that the government
now emphasizes the former at the
expense of the latter.
This onslaught has triggered a debate
among the leaders of the Arab community
in Israel over how to respond. One
camp wants Arab citizens to deepen their
integration into mainstream society and
Return to Table of Contents
As’ad Ghanem
38 FOREIGN AFFAIRS
improved greatly. Consider education:
in 1960, only 60 Arab students were
enrolled in Israeli universities; today,
there are more than 20,000 Arab university
students in the country, twothirds
of whom are female, and around
10,000 Arab Israelis study abroad.
Living standards have also risen, as
has the status of women, and a strong
middle class has emerged.
In 2014, the most recent year for
which data are available, 66 of the 112
towns in Israel with more than 5,000
residents had virtually all-Arab populations.
And thanks to high birthrates
and a young population—half of Israel’s
Arab citizens are under the age of 20,
whereas only 30 percent of Jewish Israelis
are—the Arab Israeli population is likely
to keep growing fast, with or without more
support from the government. (Some
Israeli officials have described the growing
Arab population as a threat to the
Jewish majority; in fact, since the Jewish
population is also growing, it is likely
that Arabs will continue to make up
only around 20 percent of Israel’s population
over the next three decades.)
In short, Arabs in Israel are wealthier,
healthier, and more numerous than ever
before. Yet by most measures of wellbeing,
they still lag behind their Jewish
counterparts. In 2013, the most recent
year for which data are available, the
median annual income of Israel’s Arab
households was around $27,000; for
Jewish households, it was around $47,000,
nearly 75 percent higher. The infant
mortality rate is more than twice as high
among Arabs as it is among Jews. Arabs
are also underrepresented in Israel’s
bureaucracy and academic institutions,
making up less than two percent of the
senior faculty in the country’s universities.
And Arabs remain deeply segregated
from Israel’s Jewish population: 90
percent of Arabs live in almost exclusively
Arab towns and villages, and with just a
few exceptions, Arab and Jewish children
attend separate schools. (Nevertheless,
Arabs and Jews remain relatively open
to integration: a 2015 survey by the Israeli
sociologist Sammy Smooha found that
more than half of Israel’s Arabs and Jews
supported the idea of Arabs living in
Jewish-majority neighborhoods.)
What is more, when it comes to
government support in such areas as the
allocation of land for new construction,
financing for cultural institutions, and
educational funding, Arabs suffer from
ongoing discrimination, despite some
recent progress. Arabs make up around
21 percent of Israel’s population, but
according to the Mossawa Center, a
nongovernmental organization that
advocates for Israel’s Arab citizens,
Arab communities receive only seven
percent of government funds for public
transportation and only three percent
of the Israeli Ministry of Culture and
Sport’s budget is allocated for Arab
cultural institutions; Arab schools are also
significantly underresourced. (Toward
the end of 2015, the Israeli government
approved a five-year economic development
program for Israel’s Arab community,
worth up to $4 billion, that will increase
funding for housing, education, infrastructure,
transportation, and women’s
employment. Although the plan
represents a step in the right direction,
the exact amount of funding that will be
allocated to each of these areas remains
unclear, as does the process by which
its implementation will be monitored.)
And then there is the fact that Israel
defines itself along ethnonationalist
Israel’s Second-Class Citizens
July/August 2016 39
that equality will be achieved when the
state recognizes Arabs as equal Israeli
citizens and equitably integrates them
into existing institutions.
For now, the latter approach seems
to be dominant among Arabs in Israel.
But even across this divide, there are a
number of areas of consensus. Arabs of
all political tendencies tend to condemn
the government’s current policies as
segregationist and discriminatory; many
also contend that the government’s
professed commitments to democracy
and to the Jewish character of the state
are irreconcilable. Nor are these the only
points on which most Arabs agree: around
71 percent of Arabs in Israel support
a two-state solution to the IsraeliPalestinian
conflict, according to a 2015
survey, and only 18 percent reject the
coexistence of Arabs and Jews in Israel.
The various strains of Arab political
thought were brought together in December
2006, when a group of Arab
activists and intellectuals published a
declaration, The Future Vision of the
Palestinian Arabs in Israel, that sought to
define Arabs’ relationship with the state
and their hopes for the country’s future.
The document, which I co-authored,
called on the Israeli government to
recognize its responsibility for the
expulsion of Palestinians around the
time of Israeli independence and to
consider paying reparations to the
descendants of the displaced; to grant
Arab citizens greater autonomy in
managing their cultural, religious, and
educational affairs; to enshrine Arabs’
rights to full equality; and, perhaps
most striking, to legally define Israel
as a homeland for both Arabs and Jews—
a direct challenge to the historically
Jewish character of the state.
lines that exclude the Arab minority—
from a national anthem that famously
describes the yearning of a Jewish soul
for a homeland in Zion to a flag that
displays a Star of David. In these ways,
the Israeli government has maintained
the dominance of the Jewish majority
and denied Arabs genuine equality.
Arabs in Israel thus confront a
frustrating confluence of factors: on the
one hand, they enjoy a rising socioeconomic
position; on the other, they face a
government that in many respects has
prevented them from achieving true equality.
How they respond to this frustrating
dynamic, and how the Israeli government
reacts, will have an enormous impact
on the future of Israeli society, politics,
and security.
THE INTERNAL DIVIDE
Arabs in Israel are not politically monolithic,
and their goals vary. Their civic
organizations, political activists, and public
intellectuals offer competing visions for
both the community’s internal development
and its relationship with the state.
Broadly speaking, however, their
agendas tend to fall into one of two
frameworks, each based on a different
understanding of Arab Israelis’ split
identity. The first—call it a “discourse of
difference”—suggests that Arabs’ ethnocultural
identity, rather than their Israeli
citizenship, should be the starting point
of their demands for change. By this
logic, the Israeli government should
empower Arabs to autonomously govern
their own communities, by, for example,
encouraging Arab officials to reform the
curricula of Arab schools. The second—a
“discourse of recognition”—takes Israeli
citizenship, rather than Arab identity, as its
starting point. This framework suggests
As’ad Ghanem
40 FOREIGN AFFAIRS
desert, home to most of Israel’s Bedouins,
the government has introduced projects
that aim to cement Jewish control of
the land, by, for example, demolishing
unrecognized Bedouin settlements and
establishing planned Jewish towns in their
place. More generally, the Netanyahu
government has stepped up the official
rhetoric affirming the need to strengthen
the Jewish character of the state.
In March 2014, the Knesset passed a
law raising the threshold for representation
in the legislature from two percent
to 3.25 percent of the popular vote.
The move threatened to strip the four
so-called Arab parties—Balad, Hadash,
Ta’al, and the Islamic Movement in
Israel’s southern branch—of their seats in
the election of 2015. It was a reminder
that the Israeli government’s anti-Arab
policies derive as much from the calculation
on the part of the Netanyahu
government that weakening the political
position of Arabs might keep left-wing
parties from regaining power as from
the prejudices of some Israeli officials.
Largely to prevent their exclusion
from the Knesset, the Arab parties banded
together in January 2015 to create the
Joint List, a big-tent political party that
ran on a single ticket in the election held
that March. On election day, Netanyahu
sought to boost Jewish turnout by making
the racially charged claim that Arab voters
were “streaming in droves to polling
stations.” The Joint List was remarkably
successful nevertheless. Some 82 percent
of Israel’s Arab voters cast a ballot in
support of it. With 13 seats, it emerged
as the third-largest political party in the
Knesset after Netanyahu’s Likud Party
and the center-left Zionist Union. Even
more impressive, the Joint List managed
to increase turnout among Arab voters by
Ratified by the National Committee
for the Heads of the Arab Local Authorities
in Israel (a body that represents
all of Israel’s Arabs), the document was
embraced by the Arab public: a poll I
conducted in 2008 with the sociologist
Nohad Ali found that, despite their
many differences, more than 80 percent
of Arab Israelis supported its main
proposals. In the years since its release,
politicians representing some of Israel’s
major Arab political parties have repeatedly
called on the government to act on
its demands. But Jewish leaders in the
Israeli government, media, and academia
have largely opposed the
document. The board of the Israel
Democracy Institute, a think tank,
produced a statement in January 2007
arguing that the Future Vision report, as
well as two other documents released
by Arab activists in 2006, “den[ied] the
very nature of Israel as a Jewish and
democratic state” and declaring that the
institute “reject[ed] this denial and its
implication that there is an inescapable
contradiction between the state’s Jewish
and democratic nature.”
PARLIAMENTARY PREJUDICE
Arab-Jewish relations got even worse in
the years after 2009, when Netanyahu
returned to the premiership. Since then,
the Israeli government has taken numerous
steps to further hold back Arab
citizens, from rules that limit the rights
of Arabs to live in certain Jewish villages
to a law that restricts the ability of
Palestinians in the West Bank to obtain
Israeli citizenship if they marry an Arab
citizen of Israel. (Foreign Jews of any
nationality, meanwhile, can become
Israeli citizens without establishing
family ties to Israelis.) In the Negev
Israel’s Second-Class Citizens
July/August 2016 41
Jewish threats to Muslim holy sites in
Jerusalem. And in February of this year,
after three Arab parliamentarians visited
the families of Palestinians who were killed
after attacking Israelis, Jewish lawmakers
introduced a so-called suspension bill that
would allow a three-fourths majority of the
Knesset to eject any representative deemed
to have denied the Jewish character of the
state or incited violence. The Arab population
views the proposed law as a direct
attempt to sideline their representatives
on the national stage. “Despite the delegitimization
campaign against us and the
raising of the electoral threshold, we
decided to remain part of Israeli politics,”
Ayman Odeh, an Arab parliamentarian
who heads the Joint List, said during a
debate on the proposed rule in the
Knesset in February. “Yet we continue
to be harassed.”
seven percentage points, from 56.5 percent
in the 2013 election to 63.5 percent in
2015. This surge suggests that Arabs in
Israel have become more confident that
their elected representatives can overcome
their differences and act as an effective
united force in the Israeli establishment—
in short, that national politics offer a path
toward change. At least when it comes
to parliamentary representation, rightwing
efforts to impede the progress of
the country’s Arabs have not succeeded.
Rather than accept this show of
strength, Netanyahu’s coalition responded
with further measures meant to weaken
Arabs’ political position. In November
2015, his government outlawed the
northern branch of the Islamic Movement,
an Islamist organization that has rallied a
substantial portion of the Arab community
around opposition to what it describes as
AMIRCOHEN/REUTERS
Speaking up: the Joint List leader Ayman Odeh at a protest in Tel Aviv, October 2015
As’ad Ghanem
42 FOREIGN AFFAIRS
a directly elected Arab political institution
should replace or supplement Arabs’
representation in the Knesset, for
example, has so far left the Arab population
without an elected body of its own.
In fact, it should be possible to synthesize
these competing visions into a unified
program that pushes for equal representation
in existing institutions and
greater autonomy when it comes to
educational and cultural policy. No
matter what shape such a platform takes,
however, it should commit Arab activists
to nonviolence, and it should clearly
demand that the Israeli government
abolish discrimination in the allocation
of state resources. Finally, since broad
support for Arabs’ demands for change
will make them more effective, Arabs
should invite Jews in Israel, Jewish organizations
outside the country, Arabs and
Palestinians in the region, and others
in the international community that are
sympathetic to their cause to endorse
the platform.
But in many ways, the future of the
Arabs in Israel hinges on developments
over which they have little control. The
first is how the Netanyahu government
and its successors manage Israel’s conflict
with the Palestinians in the Gaza Strip
and the West Bank: whereas open violence
between Israel and the Palestinians
tends to exacerbate anti-Arab sentiment
among Israel’s Jewish majority, a solution
to the conflict could set the stage for
reconciliation among Arabs and Jews in
Israel. The second, of course, is how the
Israeli government treats its own Arab
citizens. Regardless of the state’s choices,
however, Arabs in Israel can still shape
their own fate—but that will require
settling on a unified political program.∂
CITIZENS, UNITED
These developments have intensified
the search for a new approach among
Arab elites. Two main alternatives have
emerged. The first, headed by Odeh,
argues that Arab Israelis should work with
the Israeli left to unseat the Netanyahu
government and replace it with a centerleft
coalition that is willing to resume
the peace talks with the Palestinians
and consider major steps to advance the
equality and integration of Arab citizens.
The second, led by the northern branch
of the Islamic Movement, as well as
those Knesset members on the Joint List
who represent Balad, opposes forming
a coalition with the Israeli left. Both
camps support the creation of a separate
political body to represent Arab citizens,
but whereas the former believes that
such a body should supplement Arab
voters’ current representation in the
Knesset, the latter believes it should
replace it.
These competing platforms have
split the Arab public. In the 2015 survey
conducted by the sociologist Smooha,
76 percent of Arab Israelis polled
supported the Joint List’s cooperation
with Jewish parties in the Knesset. But
33 percent of Arab respondents voiced
support for a boycott of Knesset elections;
19 percent supported the use of any
means, including violence, to secure
equal rights; and 54 percent said that a
domestic intifada would be justified if
the situation of Arabs does not substantially
improve.
The future of the Arabs in Israel
depends in part on their ability to overcome
these internal divisions, which
have hindered the ability of the Arab
leadership to achieve progress. Disagreement
among Arab leaders as to whether
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July/August 2016 43
AMOS HAREL is Senior Military Correspondent
for Haaretz and the author of Teda kol em
Ivria: Kavim ledmutu shel Zahal hachadash (Let
Every Jewish Mother Know: The New Face of
the IDF).
THESTRUGGLEFORISRAEL
on all the other threats that gathered
during the years they were preoccupied
with Iran’s nukes. In the last five years,
states and borders have collapsed throughout
the Middle East, militant groups
such as the Islamic State (also known as
ISIS) have conquered vast territories and
drawn in large numbers of followers, and
the schism between Shiites and Sunnis
has turned more violent. All this turmoil
has fundamentally transformed the dangers
Israel now faces. The conventional threat
once posed by the Syrian military has
almost completely disappeared, only to
be replaced by the appearance of more
terrorists on another of Israel’s borders.
At the same time, since October
2015, the conflict with the Palestinians
has flared up, with teenagers from the
West Bank carrying out “lone wolf”
knife and gun attacks. The Israeli
military’s response to the violence has
raised thorny questions about its code
of conduct and laid bare the broader
divisions—between right and left, and
between religious and secular Jews—
that are transforming the Israel Defense
Forces and the country itself. At the
same time that the IDF must confront
external threats, then, Israel’s internal
problems are falling on its shoulders.
UNSWORN ENEMIES?
Shortly before Gadi Eisenkot became the
IDF’s chief of staff in February 2015, he
met with Dan Meridor, a former member
of Netanyahu’s security cabinet. “You’re
going to command an exceptional army,”
Meridor told me he told Eisenkot. “You
only have one problem: there are no
serious enemies left to fight.” Meridor
was exaggerating, but he had a point.
Israel’s traditional foes no longer pose
the threat they once did.
Israel’s Evolving
Military
The IDF Adapts to
New Threats
Amos Harel
S
oon after Benjamin Netanyahu
began his second term as Israel’s
prime minister in March 2009,
he ordered the country’s military to
develop a plan for a unilateral military
strike on Iran’s nuclear facilities. The
air force and the intelligence branch
went to work immediately; according to
Ehud Olmert, Netanyahu’s predecessor,
the preparations alone would ultimately
cost the country nearly $3 billion.
Israel never carried out the attack,
of course, and in retrospect, Netanyahu
and Ehud Barak, then Israel’s defense
minister, may never have seriously
considered launching one. But U.S.
President Barack Obama took the threat
seriously enough to toughen sanctions
against Iran in response. By bringing
the Iranian economy to its knees, the
sanctions paved the way for the election
of President Hassan Rouhani, a relative
moderate who pushed through the international
agreement that has since put
Iran’s nuclear program on hold for the
next decade.
Since then, Israel’s security agencies
have been able to refocus their attention
Return to Table of Contents
Amos Harel
44 FOREIGN AFFAIRS
For most of the past few decades, the
IDF’s nightmare scenario was a repeat of
the 1973 Yom Kippur War, when Syrian
tanks stormed the Golan Heights and
Syrian commandos captured Mount
Hermon in a surprise attack. Today,
after more than five years of civil war,
Syria has disintegrated, and the risk of
a conventional conflict with Israel has
nearly vanished. In April, Israeli soldiers
on Mount Hermon told me that their
Syrian counterparts on the other side
of the border, unable to obtain supplies,
had deserted their positions more than
a year earlier. Most of Syria’s tank units
and artillery batteries have disbanded,
and much of the country’s massive arsenal
of chemical weapons, which Damascus
began stockpiling in the 1970s to deter
Israel, has been dismantled under
international supervision.
As for the Arab countries still controlled
by the authoritarian old guard,
they have grown ever more interested
in cooperating with Israel, albeit quietly.
Egypt, Jordan, and, to a lesser extent,
Saudi Arabia and the United Arab
Emirates have abandoned their past
fixation on the Israeli-Palestinian conflict
and have mostly recognized that the
problems they share with Israel are
bigger than those that divide them:
Iran and its proxies, on the one hand,
and ISIS and al Qaeda, on the other. As
did Israeli leaders, Saudi officials criticized
the Obama administration over
the nuclear deal with Iran; in recent
years, Saudi Arabia has also stepped
up its intelligence sharing with Israel.
The disappearance of the conventional
threats to Israel’s security is not
just the result of recent regional turmoil,
however; it is also a product of these
governments’ recognition of Israel’s
military superiority. When it comes to
Israel’s commanders, defense technologies,
air force, and intelligence agencies,
the country’s capabilities are vastly
superior to those of its neighbors. Its
victories in most conflicts since 1948
have made this superiority abundantly
clear. Partly as a result, since 1973, Syria
has mostly avoided confronting Israel
directly, and Egypt and Jordan have
signed peace agreements with it.
DANGEROUS NEIGHBORS
Yet considering the remaining threats
to Israel’s security—militant groups—
the picture grows darker. At the moment,
Hezbollah and ISIS are too busy fighting
each other in Syria to think much about
Israel. But both groups have declared their
intention to attack it in the future. Once
Syria’s civil war finally ends, Hezbollah
will probably need time to regroup and
so will hold off on attacking Israel; ISIS
will likely act on its threats sooner.
Over the last ten years, Hezbollah
has amassed an arsenal of between 100,000
and 150,000 rockets and missiles. During
the 2006 war in Lebanon, the group
launched some 4,200 of such projectiles
at Israeli towns and cities. Most of them
missed, but they still killed 42 Israeli
civilians and provoked a massive military
response—a sign that Hezbollah had
managed to exploit Israel’s extreme
sensitivity to casualties. Since then,
the group’s leaders have pledged to up
the ante in any future conflict. Should
Israel attack again, they say, they will
turn Lebanese territory into a death trap
for IDF forces; Israeli officials contend
that Hezbollah would hit Israeli towns
and infrastructure with as many as 1,500
rockets per day and launch cross-border
raids on Israeli villages and military
Israel’s Evolving Military
July/August 2016 45
Hezbollah has sustained in Syria, its
commanders will emerge from the
conflict there with valuable combat
experience that they could use against
the IDF. After the Syrian civil war ends,
Hezbollah and its Iranian patrons will
no doubt still view Israel as the region’s
major source of evil. But because the
group will likely be reeling from that
bloody conflict, it will probably not
attack immediately; rather, it will wait
months or even years for the right
moment to strike.
Should Hezbollah unleash its promised
barrage of rocket attacks on Israel,
the mayhem would bring civilian life
there to a virtual halt, putting the government
under enormous public pressure
to stop the attacks. To do so, it would
likely send tens of thousands of ground
troops deep into Lebanon and carry out
aggressive air strikes against Hezbollah’s
bases there. But since Hezbollah has
installations. Using this combination of
asymmetric tactics, Hezbollah believes
that it will force Israel into a stalemate—
an outcome Hezbollah could then present
as a victory, given the IDF’s enormous
advantages.
At the beginning of this year, Hassan
Nasrallah, Hezbollah’s secretary-general,
claimed that the group plans to supplement
this approach with still new tactics.
In the event of an Israeli attack, he
promised, Hezbollah will strike Israeli
nuclear sites and fire rockets at chemical
storage tanks in Haifa, where much of
Israel’s heavy industry is located. (Nasrallah
has also claimed that Hezbollah would
invade the Galilee, the Israeli region
closest to the Lebanese border.) Although
Hezbollah may prove too weak to deliver
on such threats in the face of an all-out
Israeli invasion, the group clearly poses
a more serious threat than it did a few
years ago. Despite the heavy casualties
RONENZVULUN/REUTERS
On guard: an Israeli soldier in northern Israel, April 2016
Amos Harel
46 FOREIGN AFFAIRS
counter the group. In return for the
PA’s cooperation, the Israeli government
has generally not intervened in the PA’s
domestic affairs and has allowed the
West Bank to enjoy a modest economic
recovery. At the same time, more and
more Israeli leaders have abandoned
talk of a permanent peace and have
started focusing on how to manage,
rather than resolve, the conflict.
Yet Israel’s strategy has recently run
into serious problems. During Israel’s
2014 military campaign against Hamas,
the IDF aggressively bombed Gaza in
order to stop the group’s rocket fire and
destroy the tunnels it had dug under
the border. Israel even sent in ground
troops to kill Hamas’ fighters and attack
its military infrastructure near the
border with Israel. The death toll—
1,483 Palestinian civilians, 722 Palestinian
fighters, and 72 Israelis, 66 of
them soldiers, were killed, according to
the UN—led to intense Western criticism
of Israel’s tactics as unnecessarily brutal.
In Gaza, the IDF faces the same
dilemma as in Lebanon: stopping enemy
attacks seems to require Israeli offensives
that kill many civilians. Worse, it appears
that another conflict with Hamas may
be in the offing. Lacking the support
from Egypt it once enjoyed and facing
public discontent as everyday life in
Gaza becomes increasingly miserable,
the militant group is feeling pressured,
which might encourage it to begin
another round of escalation with Israel.
ARMY AND NATION
Not only has Israel’s military had to
contend with shifting external threats;
it has also had to grapple with changes
in its own society. Until at least the
mid-1980s, Israel saw itself as struggling
built its bases in densely populated
areas, the IDF would likely kill many
Lebanese civilians in the process. The
Israeli government would thus find
itself in a bind, facing intense domestic
demands for rapid action on the one
hand and international condemnation
for its tactics on the other. To make
matters worse, the IDF would be unlikely
to achieve a decisive victory: even under
a heavy offensive, Hezbollah would still
be able to fire a large number of rockets
at Israel.
Israel’s current military leaders
recognize this dilemma, but they also
contend that against massive rocket fire,
there would probably be no alternative
to an IDF ground maneuver in Lebanon.
The goal of inflicting massive military
destruction on Lebanon would be to
deter Hezbollah from attacking for at
least a decade after the end of a potential
conflict.
As for ISIS, it represents a significant
threat to Israel, but it is not as dangerous
as Hezbollah. ISIS has already sent
some of its foreign fighters home to
Europe to attack Jewish targets there
and has repeatedly threatened to attack
Israel from both the Egyptian and the
Syrian border. It will likely try to do
so soon, since doing so would give it a
massive PR boost. To prepare for that
possibility, the IDF has deployed more
forces to both borders and strengthened
its fences there; it has also stepped up
intelligence gathering on the group.
The Palestinian territories, meanwhile,
present their own set of problems.
Since at least 2007, when Hamas took
over Gaza by force the year after it
won elections there, the IDF has worked
closely with the Palestinian Authority,
which still governs the West Bank, to
Israel’s Evolving Military
July/August 2016 47
At the same time, the military’s demographic
makeup has started to change.
Today, only 73 percent of eligible Jewish
Israeli men and 58 percent of eligible
Jewish Israeli women serve in the IDF—a
historic low in a country with a longstanding
policy of mandatory military
service for most Jews. Many of the Jewish
men who don’t serve are ultra-Orthodox
and non-Zionist; under a long-standing
deal with the government, they are
exempted from service so that they can
continue their religious studies. Jewish
women, meanwhile, can opt out of
service simply by declaring themselves
religious, even if they are Zionists and
aren’t ultra-Orthodox. Such exemptions
frustrate much of the secular population,
especially the parents of military-age
Israelis, who feel that the rules place an
undue burden on those willing to serve.
Since 2014, the state has required several
thousand highly religious yeshiva students
to enlist each year, and the students
have generally complied. But popular
tension over the exemptions seems set
to continue.
Another major change that has
occurred in recent years is the
increasing reluctance of liberal secular
Jews to volunteer to serve as officers
and in combat units. A growing number
of mostly right-wing religious Zionists
have stepped in to fill these gaps, coming
to dominate the ranks of the IDF’s elite
combat groups. Between 1990 and 2010,
the percentage of religious junior officers
in infantry units rose from 2.5 percent
to somewhere between 35 percent and
40 percent. This changing balance raises
a number of potential problems. It is
conceivable, for example, that units
staffed by religious, right-wing Israelis
might not obey an order to dismantle
for survival. Most Israeli men considered
combat service a national necessity
and a personal aspiration, and most
women were content to serve in the IDF
in noncombat support roles. For the
first few decades after the Holocaust,
most Israelis thought that spending
time in uniform and suffering military
casualties were a worthwhile price to
pay for protecting the country.
Since the 1980s, however, that
sentiment has diminished somewhat.
Many Israelis began to disapprove of
the occupation of the Gaza Strip and
the West Bank and to question their
country’s actions in the 1982 war with
Lebanon and in the first intifada, which
began in 1987. Then, in the early 1990s,
came the Oslo Accords, which were
designed to settle the Israeli-Palestinian
conflict once and for all; at the same time,
Israel deepened its security, economic,
and cultural ties to the United States
and some western European countries.
Many Israelis became convinced that
their country might finally break the
pattern of seemingly endless conflict.
That daydream was shattered by the
assassination of Yitzhak Rabin, Israel’s
then prime minister, in 1995, and by
the second intifada, which lasted from
2000 to 2005. Yet many Israelis retained
their skepticism over the value of their
country’s military actions. Israel has
now become the kind of society that
the military strategist Edward Luttwak
might call “post-heroic”—one that is
less willing to risk the lives of its young
people in wars that segments of the
population do not consider absolutely
necessary. Some Israelis have also become
less comfortable with enemy civilian
deaths, in part out of concern for their
country’s international reputation.
Amos Harel
48 FOREIGN AFFAIRS
to defeat unconventional opponents
could become a bigger problem should
another war with Hezbollah break out,
for most Israelis fail to recognize how
much the group’s capabilities and
ambitions have grown in recent years.
UNCONVENTIONAL WISDOM
To deal with all these changes, soon
after Eisenkot was appointed chief of
staff, he introduced a five-year plan to
streamline the Israeli military. By 2017,
the IDF expects to reduce its 45,000-strong
officer corps by 5,000; release tens of
thousands of older, unfit, and poorly
trained soldiers from its reserves; and
eliminate many of the army’s aging
armored brigades, some of which used
1960s-era Patton tanks until recently.
The Israeli air force has unveiled plans
to get rid of dozens of its 40-year-old
warplanes, including some of its older
F-15s and F-16s, and purchase at least
two squadrons (or around 50 planes) of
new F-35 fighters from the United States.
Like his predecessors, Eisenkot has also
pledged to invest generously in Israel’s
cyberwarfare and intelligence units.
Unlike his predecessors, however,
Eisenkot has acknowledged that the
IDF’s technological prowess may not
be enough to allow it to triumph against
an unconventional enemy. To fill the
gap, he has refocused the army’s training
on countering guerilla-style opponents;
updated the structure of its ground
forces by, for example, establishing a
new commando brigade; and revised
its operational plans for defending
Israel’s borders to prepare elite units
for offensive action. Finally, Israel’s air
force, army, and intelligence units are
working to improve their ability to
coordinate and share information in
Jewish settlements in the West Bank.
The IDF dismantled such settlements
during Israel’s withdrawal from the
Gaza Strip in 2005, and during that
operation, some 60 Israeli soldiers
refused to take orders from their
superiors; a withdrawal from the West
Bank, where there are far more settlers
than there were in Gaza before 2005,
could pose a greater challenge. Highly
religious male soldiers may also have
problems interacting with their female
colleagues: some have already refused
to serve in mixed combat units and have
demanded that women soldiers dress in
“modest” uniforms. In recent years, the
extent of gender segregation within IDF
units and the degree to which religious
soldiers should be permitted to excuse
themselves from cultural activities that
they consider immoral have been issues
of near-constant debate in Israel; the
IDF appears to be leaning toward secular
approaches to such issues and has faced
growing criticism from rabbis and some
members of the Knesset for doing so.
Israelis have also grown more critical
of the IDF’s performance, particularly in
the conflict in Lebanon in 2006 and in
its 2014 military campaign in Gaza;
public opinion polls suggest that most
Israelis believe their country ended
both those conflicts in a draw. Many
taxpayers now have a hard time understanding
why a military with an annual
budget of around $8 billion has struggled
to defeat far smaller and less technologically
advanced opponents such as
Hamas and Hezbollah. What many of
these critics don’t realize, however, is
that decisive victories against such
opponents are hard to achieve. Nevertheless,
this gap between the public’s
expectations and the military’s ability
49
the event of a major conflict with
Hezbollah.
These reforms, while important,
will not help the IDF address its most
immediate challenge, however: the
consequences of the surge in violence
that broke out in Israel and the Palestinian
territories last October after
Jewish radicals attempted to pray on
the Temple Mount—an area known to
Muslims as the Noble Sanctuary and
that the Israeli government and Muslim
leaders have reserved for Muslim prayer
since 1967. In the intervening months,
young Palestinians have carried out a
string of lone-wolf attacks, ramming
cars into Israeli pedestrians and soldiers
or stabbing them in the streets. By early
May, the assailants had killed more than
30 Israelis; the IDF, meanwhile, had
killed more than 175 alleged Palestinian
attackers and arrested around 2,500
more Palestinians.
So far, Israel has avoided the
collective punishments, such as denying
Palestinians permits to work in Israel,
that it employed during the first and
second intifadas. The IDF has also
insisted on maintaining its cooperation
with the PA’s security agencies. In the
months after October, Israel’s security
agencies began to foil an increasing
number of attacks, mostly by monitoring
social media. The PA has unveiled a
campaign to dissuade high school
students from joining the conflict, and
in February, it started preemptively
arresting potential assailants.
None of this has diminished the
anxiety inside Israel, however, and the
attacks have provoked hysterical and
sometimes racist responses from both
civilians and officials. Even Eisenkot
has become a target of this vitriol: in
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Amos Harel
50 FOREIGN AFFAIRS
(Yaalon resigned on May 20, saying
that he strongly disagreed with Netanyahu’s
government “on moral and
professional issues.”)
All of this has left Eisenkot with
two main challenges: defending the
army and its code of ethics from both
left- and right-wing critics and preparing
it for war on several different
and uncertain fronts. So far, he has
managed the tasks well. But he increasingly
finds himself at odds with many
Israeli citizens, with conservative politicians,
and, perhaps most important,
with some of his own soldiers, who
prefer to shoot Palestinian attackers
first and ask questions later. At the
very time the IDF should be retooling
itself to confront a new set of external
threats, it has found itself thrust into a
new and uncomfortable role as one of
the last gatekeepers of Israel’s
democracy.∂
January, for example, when he insisted
that the army adhere to its rules of
engagement in order to avoid unnecessary
deaths, he was severely criticized,
not just by right-wing backbenchers in
the Knesset but also by some ministers
in the governing Likud Party.
The debate turned even uglier in late
March after a soldier was videotaped
shooting a Palestinian assailant in the
head as he lay wounded on the ground.
The Israeli army charged the soldier
with manslaughter. Right-wing legislators
and nationalist soccer hooligans
held a heated demonstration outside
the military court near the southern
city of Ashkelon. Posters portraying
Eisenkot and then Defense Minister
Moshe Yaalon as traitors appeared around
the Kirya, the IDF’s Tel Aviv headquarters.
But Eisenkot did not crack under
the pressure: the soldier’s trial began in
early May, and Eisenkot has insisted that
he alone is responsible for defining the
military’s rules of engagement.
Eisenkot’s deputy, Major General
Yair Golan, got into even worse trouble
a few days later in May, on Israel’s
Holocaust Remembrance Day, when he
gave a speech warning of increasingly
racist and violent trends in Israeli society.
By claiming that he recognized some
similarities between developments in
contemporary Israel and “the revolting
processes that occurred in Europe in
general, and particularly in Germany . . .
70, 80, and 90 years ago”—an allusion to
the Nazi period—Golan caused a massive
scandal. Right-wing ministers demanded
his resignation, and Netanyahu publicly
reprimanded him for “cheapen[ing] the
Holocaust.” Golan will remain in office,
but his chances of becoming Eisenkot’s
successor in 2019 now seem diminished.
July/August 2016 51
MARTIN KRAMER is President of Shalem
College, in Jerusalem, and the author of the
forthcoming book The War on Error: Israel,
Islam, and the Middle East.
THESTRUGGLEFORISRAEL
has changed—decidedly for the better. By
every measure, Israel is more globalized,
prosperous, and democratic than at any
time in its history. As nearby parts of
the Middle East slip under waves of
ruthless sectarian strife, Israel’s minorities
rest secure. As Europe staggers
under the weight of unwanted Muslim
migrants, Israel welcomes thousands
of Jewish immigrants from Europe. As
other Mediterranean countries struggle
with debt and unemployment, Israel
boasts a growing economy, supported
by waves of foreign investment.
Politically, Netanyahu’s tenure has
been Israel’s least tumultuous. Netanyahu
has served longer than any other
Israeli prime minister except David
Ben-Gurion, yet he has led Israel in only
one ground war: the limited Operation
Protective Edge in Gaza in 2014. “I’d
feel better if our partner was not the
trigger-happy Netanyahu,” wrote the New
York Times columnist Maureen Dowd
four years ago. But Netanyahu hasn’t
pulled triggers, even against Iran. The
Israeli electorate keeps returning him to
office precisely because he is risk averse:
no needless wars, but no ambitious peace
plans either. Although this may produce
“overwhelming frustration” in Obama’s
White House, in Vice President Joe Biden’s
scolding phrase, it suits the majority of
Israeli Jews just fine.
Netanyahu’s endurance fuels the
frustration of Israel’s diminished left,
too: thwarted at the ballot box, they
comfort themselves with a false notion
that Israel’s democracy is endangered.
The right made similar claims 20 years
ago, culminating in the assassination of
Prime Minister Yitzhak Rabin. Antidemocratic
forces exist in all democracies,
but in Israel, they are either outside the
Israel and the
Post-American
Middle East
Why the Status Quo Is
Sustainable
Martin Kramer
W
as the feud between U.S.
President Barack Obama
and Israeli Prime Minister
Benjamin Netanyahu, first over settlements
and then over Iran, a watershed?
Netanyahu, it is claimed, turned U.S.
support of Israel into a partisan issue.
Liberals, including many American
Jews, are said to be fed up with Israel’s
“occupation,” which will mark its 50th
anniversary next year. The weakening
of Israel’s democratic ethos is supposedly
undercutting the “shared values”
argument for the relationship. Some say
Israel’s dogged adherence to an “unsustainable”
status quo in the West Bank
has made it a liability in a region in the
throes of change. Israel, it is claimed, is
slipping into pariah status, imposed by the
global movement for Boycott, Divestment,
and Sanctions (BDS).
Biblical-style lamentations over Israel’s
final corruption have been a staple of the
state’s critics and die-hard anti-Zionists
for 70 years. Never have they been so
detached from reality. Of course, Israel
Return to Table of Contents
Martin Kramer
52 FOREIGN AFFAIRS
system or confined in smaller parties,
Jewish and Arab alike. There is no
mechanism by which an outlier could
capture one of the main political parties
in a populist upsurge, as now seems
likely in the United States. Under comparable
pressures of terrorism and war,
even old democracies have wavered,
but Israel’s record of fair, free elections
testifies to the depth of its homegrown
democratic ethos, reinforced by a vigorous
press and a vigilant judiciary.
Israel is also more secure than ever.
In 1948, only 700,000 Jews faced the
daunting challenge of winning independence
against the arrayed armies of the
Arab world. Ben-Gurion’s top commanders
warned him that Israel had
only a 50-50 chance of victory. Today,
there are over six million Israeli Jews,
and Israel is among the world’s most
formidable military powers. It has a
qualitative edge over any imaginable
combination of enemies, and the
ongoing digitalization of warfare has
played precisely to Israel’s strengths.
The Arab states have dropped out of
the competition, leaving the field to
die-hard Islamists on Israel’s borders.
They champion “resistance,” but their
primitive rocketry and tunnel digging
are ineffective. The only credible threat
to a viable Israel would be a nuclear
Iran. No one doubts that if Iran ever
breaks out, Israel could deploy its own
nuclear deterrent, independent of any
constraining alliance.
And what of the Palestinians? There
is no near solution to this enduring
conflict, but Israel has been adept at
containing its effects. There is occupied
territory, but there is also unoccupied
territory. Israel maintains an over-thehorizon
security footprint in most of
the West Bank; Israeli-Palestinian
security cooperation fills in most of the
gaps. The Palestinian Authority, in the
words of one wag, has become a “miniJordan,”
buttressed by a combination
of foreign aid, economic growth, and
the usual corruption. By the standards
of today’s Middle East, the IsraeliPalestinian
conflict remains stable. It
is prosecuted mostly at a distance,
through maneuvering in international
bodies and campaigns for and against
BDS. These are high-decibel, low-impact
confrontations. Yossi Vardi, Israel’s
most famous high-tech entrepreneur,
summarizes the mainstream Israeli
view: “I’m not at all concerned about
the economic effect of BDS. We have
been subject to boycotts before.” And
they were much worse.
Every political party in Israel has its
own preferred solution to the conflict,
but no solution offers an unequivocal
advantage over the status quo. “The
occupation as it is now can last forever,
and it is better than any alternative”—
this opinion, issued in April by Benny
Ziffer, the literary editor of the liberal,
left-wing Haaretz, summarizes the present
Israeli consensus. It is debatable whether
the two-state option has expired. But the
reality on the ground doesn’t resemble
one state either. Half a century after the
1967 war, only five percent of Israelis live
in West Bank settlements, and half of
them live in the five blocs that would be
retained by Israel in any two-state scenario.
In the meantime, Egypt, Jordan, Saudi
Arabia, and the United Arab Emirates
are all shaking hands with Israel, sometimes
before the cameras. Israel and
Russia are assiduously courting each other;
still farther afield, Israel’s relations with
China and India are booming. The
Israel and the Post-American Middle East
July/August 2016 53
driving its adversaries to resignation—
and compromise. This is more an art
than a science, but such resolve has
served Israel well over time.
THE SUPERPOWER RETREATS
Still, there is a looming cloud on Israel’s
horizon. It isn’t Iran’s delayed nukes,
academe’s threats of boycott, or Palestinian
maneuvers at the UN. It is a huge
power vacuum. The United States, after
a wildly erratic spree of misadventures,
is backing out of the region. It is cutting
its exposure to a Middle East that has
consistently defied American expectations
and denied successive American
presidents the “mission accomplished”
moments they crave. The disengagement
began before Obama entered the
White House, but he has accelerated it,
coming to see the Middle East as a region
to be avoided because it “could not be
fixed—not on his watch, and not for a
genuine pariah of the Middle East is
the Syrian regime, which never deigned
to make peace with Israel. This last
so-called steadfast Arab state is consumed
from within by a great bloodbath; its
nuclear project and massive stocks of
chemical weapons are a distant memory.
Israel faces all manner of potential
threats and challenges, but never has it
been more thoroughly prepared to meet
them. The notion popular among some
Israeli pundits that their compatriots
live in a perpetual state of paralyzing
fear misleads both Israel’s allies and its
adversaries. Israel’s leaders are cautious
but confident, not easily panicked, and
practiced in the very long game that
everyone plays in the Middle East.
Nothing leaves them so unmoved as
the vacuous mantra that the status quo
is unsustainable. Israel’s survival has
always depended on its willingness to
sustain the status quo that it has created,
BAZRATNER/REUTERS
Mind the gap: Hillary Clinton and Benjamin Netanyahu in Jerusalem, November 2012
Martin Kramer
54 FOREIGN AFFAIRS
Middle East. Israel wants a new memorandum
of understanding with the
United States, the bigger the better, as
compensation for the Iran nuclear deal.
It is in Israel’s interest to emphasize
the importance of the U.S.-Israeli
relationship as the bedrock of regional
stability going forward.
But how far forward is another
question. Even as Israel seeks to deepen
the United States’ commitment in the
short term, it knows that the unshakable
bond won’t last in perpetuity. This is a
lesson of history. The leaders of the
Zionist movement always sought to ally
their project with the dominant power
of the day, but they had lived through
too much European history to think
that great power is ever abiding. In the
twentieth century, they witnessed the
collapse of old empires and the rise of
new ones, each staking its claim to the
Middle East in turn, each making
promises and then rescinding them.
When the United States’ turn came,
the emerging superpower didn’t rush
to embrace the Jews. They were alone
during the 1930s, when the gates of
the United States were closed to them.
They were alone during the Holocaust,
when the United States awoke too late.
They were alone in 1948, when the United
States placed Israel under an arms
embargo, and in 1967, when a U.S.
president explicitly told the Israelis that
if they went to war, they would be alone.
After 1967, Israel nestled in the Pax
Americana. The subsequent decades
of the “special relationship” have so
deepened Israel’s dependence on the
United States in the military realm that
many Israelis can no longer remember
how Israel managed to survive without
all that U.S. hardware. Israel’s own armies
generation to come.” (This was the
bottom-line impression of the journalist
Jeffrey Goldberg, to whom Obama granted
his legacy interview on foreign policy.)
If history is precedent, this is more
than a pivot. Over the last century, the
Turks, the British, the French, and the
Russians each had their moment in the
Middle East, but prolonging it proved
costly as their power ebbed. They gave
up the pursuit of dominance and settled
for influence. A decade ago, in the pages
of this magazine, Richard Haass, the
president of the Council on Foreign
Relations, predicted that the United
States had reached just this point: “The
American era in the Middle East,” he
announced, “. . . has ended.” He went
on: “The United States will continue to
enjoy more influence in the region than
any other outside power, but its influence
will be reduced from what it once
was.” That was a debatable proposition
in 2006; now in 2016, Obama has made
it indisputable.
There are several ways to make a
retreat seem other than it is. The Obama
administration’s tack has been to create
the illusion of a stable equilibrium, by
cutting the United States’ commitments
to its allies and mollifying its adversaries.
And so, suddenly, none of the United
States’ traditional friends is good enough
to justify its full confidence. The great
power must conceal its own weariness,
so it pretends to be frustrated by the
inconstancy of “free riders.” The resulting
complaints about Israel (as well as
Egypt and Saudi Arabia) serve just such
a narrative.
Israel’s leaders aren’t shy about warning
against the consequences of this posture,
but they are careful not to think out loud
about Israeli options in a post-American
55
of supporters in the United States,
especially in the Jewish community,
reinforce this mindset as they assure
themselves that were it not for their
lobbying efforts in Washington, Israel
would be in mortal peril.
But the Obama administration has
given Israelis a preview of just how the
unshakable bond is likely to be shaken.
This prospect might seem alarming to
Israel’s supporters, but the inevitable
turn of the wheel was precisely the
reason Zionist Jews sought sovereign
independence in the first place. An
independent Israel is a guarantee against
the day when the Jews will again find
themselves alone, and it is an operating
premise of Israeli strategic thought
that such a day will come.
ISRAEL ALONE
This conviction, far from paralyzing
Israel, propels it to expand its options,
diversify its relationships, and build its
independent capabilities. The Middle
East of the next 50 years will be different
from that of the last 100. There
will be no hegemony-seeking outside
powers. The costs of pursuing fullspectrum
dominance are too high; the
rewards are too few. Outside powers
will pursue specific goals, related to oil
or terrorism. But large swaths of the
Middle East will be left to their fate,
to dissolve and re-form in unpredictable
ways. Israel may be asked by weaker
neighbors to extend its security net to
include them, as it has done for decades
for Jordan. Arab concern about Iran is
already doing more to normalize Israel
in the region than the ever-elusive and
ever-inconclusive peace process. Israel,
once the fulcrum of regional conflict,
will loom like a pillar of regional
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Martin Kramer
56 FOREIGN AFFAIRS
don’t sway Israel’s government, which
knows better, but they do fuel Arab and
Iranian rejection of Israel among those
who believe that the United States no
longer has Israel’s back. For Israel’s
enemies, drawing the conclusion that
Israel is thus weak would be a tragic
mistake: Israel is well positioned to
sustain the status quo all by itself. Its
long-term strategy is predicated on it.
A new U.S. administration will offer
an opportunity to revisit U.S. policy, or at
least U.S. rhetoric. One of the candidates,
Hillary Clinton, made a statement as
secretary of state in Jerusalem in 2010 that
came closer to reality and practicality.
“The status quo is unsustainable,” she
said, echoing the usual line. But she added
this: “Now, that doesn’t mean that it can’t
be sustained for a year or a decade, or two
or three, but fundamentally, the status
quo is unsustainable.” Translation: the
status quo may not be optimal, but it is
sustainable, for as long as it takes.
As the United States steps back from
the Middle East, this is the message
Washington should send if it wants to
assist Israel and other U.S. allies in
filling the vacuum it will leave behind.∂
stability—not only for its own people
but also for its neighbors, threatened
by a rising tide of political fragmentation,
economic contraction, radical Islam, and
sectarian hatred.
So Israel is planning to outlast the
United States in the Middle East.
Israelis roll their eyes when the United
States insinuates that it best understands
Israel’s genuine long-term interests,
which Israel is supposedly too traumatized
or confused to discern. Although Israel
has made plenty of tactical mistakes, it
is hard to argue that its strategy has
been anything but a success. And given
the wobbly record of the United States
in achieving or even defining its interests
in the Middle East, it is hard to say the
same about U.S. strategy. The Obama
administration has placed its bet on the
Iran deal, but even the deal’s most ardent
advocates no longer claim to see the
“arc of history” in the Middle East. In
the face of the collapse of the Arab Spring,
the Syrian dead, the millions of refugees,
and the rise of the Islamic State, or ISIS,
who can say in which direction the arc
points? Or where the Iran deal will lead?
One other common American
mantra deserves to be shelved. “Precisely
because of our friendship,” said
Obama five years ago, “it is important
that we tell the truth: the status quo is
unsustainable, and Israel too must act
boldly to advance a lasting peace.” It is
time for the United States to abandon
this mantra, or at least modify it. Only
if Israel’s adversaries conclude that Israel
can sustain the status quo indefinitely—
Israel’s military supremacy, its economic
advantage, and, yes, its occupation—is
there any hope that they will reconcile
themselves to Israel’s existence as a
Jewish state. Statements like Obama’s