The Israel Lobby, part II
JOHN MEARSHEIMER and STEPHEN WALT
London Review of Books: Vol. 28 No. 6, 23 March 2006
[Read entire article]
continued from part I ...
By the mid-1990s there was considerable dissatisfaction with dual containment, because it made the United States the mortal enemy of two countries that hated each other, and forced Washington to bear the burden of containing both. But it was a strategy the Lobby favoured and worked actively in Congress to preserve. Pressed by AIPAC and other pro-Israel forces, Clinton toughened up the policy in the spring of 1995 by imposing an economic embargo on Iran. But AIPAC and the others wanted more. The result was the 1996 Iran and Libya Sanctions Act, which imposed sanctions on any foreign companies investing more than $40 million to develop petroleum resources in Iran or Libya. As Ze'ev Schiff, the military correspondent of Ha'aretz, noted at the time, 'Israel is but a tiny element in the big scheme, but one should not conclude that it cannot influence those within the Beltway.'
By the late 1990s, however, the neo-conservatives were arguing that dual containment was not enough and that regime change in Iraq was essential. By toppling Saddam and turning Iraq into a vibrant democracy, they argued, the US would trigger a far-reaching process of change throughout the Middle East. The same line of thinking was evident in the 'Clean Break' study the neo-conservatives wrote for Netanyahu. By 2002, when an invasion of Iraq was on the front-burner, regional transformation was an article of faith in neo-conservative circles.
Charles Krauthammer describes this grand scheme as the brainchild of Natan Sharansky, but Israelis across the political spectrum believed that toppling Saddam would alter the Middle East to Israel's advantage. Aluf Benn reported in Ha'aretz (17 February 2003):
'Senior IDF officers and those close to Prime Minister Ariel Sharon, such as National Security Adviser Ephraim Halevy, paint a rosy picture of the wonderful future Israel can expect after the war. They envision a domino effect, with the fall of Saddam Hussein followed by that of Israel's other enemies . . . Along with these leaders will disappear terror and weapons of mass destruction.'
Once Baghdad fell in mid-April 2003, Sharon and his lieutenants began urging Washington to target Damascus. On 16 April, Sharon, interviewed in Yedioth Ahronoth, called for the United States to put 'very heavy' pressure on Syria, while Shaul Mofaz, his defence minister, interviewed in Ma'ariv, said: 'We have a long list of issues that we are thinking of demanding of the Syrians and it is appropriate that it should be done through the Americans.' Ephraim Halevy told a WINEP audience that it was now important for the US to get rough with Syria, and the Washington Post reported that Israel was 'fuelling the campaign' against Syria by feeding the US intelligence reports about the actions of Bashar Assad, the Syrian president.
Prominent members of the Lobby made the same arguments. Wolfowitz declared that 'there has got to be regime change in Syria,' and Richard Perle told a journalist that 'a short message, a two-worded message' could be delivered to other hostile regimes in the Middle East: 'You're next.' In early April, WINEP released a bipartisan report stating that Syria 'should not miss the message that countries that pursue Saddam's reckless, irresponsible and defiant behaviour could end up sharing his fate'. On 15 April, Yossi Klein Halevi wrote a piece in the Los Angeles Times entitled 'Next, Turn the Screws on Syria', while the following day Zev Chafets wrote an article for the New York Daily News entitled 'Terror-Friendly Syria Needs a Change, Too'. Not to be outdone, Lawrence Kaplan wrote in the New Republic on 21 April that Assad was a serious threat to America.
Back on Capitol Hill, Congressman Eliot Engel had reintroduced the Syria Accountability and Lebanese Sovereignty Restoration Act. It threatened sanctions against Syria if it did not withdraw from Lebanon, give up its WMD and stop supporting terrorism, and it also called for Syria and Lebanon to take concrete steps to make peace with Israel. This legislation was strongly endorsed by the Lobby � by AIPAC especially � and 'framed', according to the Jewish Telegraph Agency, 'by some of Israel's best friends in Congress'. The Bush administration had little enthusiasm for it, but the anti-Syrian act passed overwhelmingly (398 to 4 in the House; 89 to 4 in the Senate), and Bush signed it into law on 12 December 2003.
The administration itself was still divided about the wisdom of targeting Syria. Although the neo-conservatives were eager to pick a fight with Damascus, the CIA and the State Department were opposed to the idea. And even after Bush signed the new law, he emphasised that he would go slowly in implementing it. His ambivalence is understandable. First, the Syrian government had not only been providing important intelligence about al-Qaida since 9/11: it had also warned Washington about a planned terrorist attack in the Gulf and given CIA interrogators access to Mohammed Zammar, the alleged recruiter of some of the 9/11 hijackers. Targeting the Assad regime would jeopardise these valuable connections, and thereby undermine the larger war on terrorism.
Second, Syria had not been on bad terms with Washington before the Iraq war (it had even voted for UN Resolution 1441), and was itself no threat to the United States. Playing hardball with it would make the US look like a bully with an insatiable appetite for beating up Arab states. Third, putting Syria on the hit list would give Damascus a powerful incentive to cause trouble in Iraq. Even if one wanted to bring pressure to bear, it made good sense to finish the job in Iraq first. Yet Congress insisted on putting the screws on Damascus, largely in response to pressure from Israeli officials and groups like AIPAC. If there were no Lobby, there would have been no Syria Accountability Act, and US policy towards Damascus would have been more in line with the national interest.
Israelis tend to describe every threat in the starkest terms, but Iran is widely seen as their most dangerous enemy because it is the most likely to acquire nuclear weapons. Virtually all Israelis regard an Islamic country in the Middle East with nuclear weapons as a threat to their existence. 'Iraq is a problem . . . But you should understand, if you ask me, today Iran is more dangerous than Iraq,' the defence minister, Binyamin Ben-Eliezer, remarked a month before the Iraq war.
Sharon began pushing the US to confront Iran in November 2002, in an interview in the Times. Describing Iran as the 'centre of world terror', and bent on acquiring nuclear weapons, he declared that the Bush administration should put the strong arm on Iran 'the day after' it conquered Iraq. In late April 2003, Ha'aretz reported that the Israeli ambassador in Washington was calling for regime change in Iran. The overthrow of Saddam, he noted, was 'not enough'. In his words, America 'has to follow through. We still have great threats of that magnitude coming from Syria, coming from Iran.'
The neo-conservatives, too, lost no time in making the case for regime change in Tehran. On 6 May, the AEI co-sponsored an all-day conference on Iran with the Foundation for the Defense of Democracies and the Hudson Institute, both champions of Israel. The speakers were all strongly pro-Israel, and many called for the US to replace the Iranian regime with a democracy. As usual, a bevy of articles by prominent neo-conservatives made the case for going after Iran. 'The liberation of Iraq was the first great battle for the future of the Middle East . . . But the next great battle � not, we hope, a military battle � will be for Iran,' William Kristol wrote in the Weekly Standard on 12 May.
The administration has responded to the Lobby's pressure by working overtime to shut down Iran's nuclear programme. But Washington has had little success, and Iran seems determined to create a nuclear arsenal. As a result, the Lobby has intensified its pressure. Op-eds and other articles now warn of imminent dangers from a nuclear Iran, caution against any appeasement of a 'terrorist' regime, and hint darkly of preventive action should diplomacy fail. The Lobby is pushing Congress to approve the Iran Freedom Support Act, which would expand existing sanctions. Israeli officials also warn they may take pre-emptive action should Iran continue down the nuclear road, threats partly intended to keep Washington's attention on the issue.
One might argue that Israel and the Lobby have not had much influence on policy towards Iran, because the US has its own reasons for keeping Iran from going nuclear. There is some truth in this, but Iran's nuclear ambitions do not pose a direct threat to the US. If Washington could live with a nuclear Soviet Union, a nuclear China or even a nuclear North Korea, it can live with a nuclear Iran. And that is why the Lobby must keep up constant pressure on politicians to confront Tehran. Iran and the US would hardly be allies if the Lobby did not exist, but US policy would be more temperate and preventive war would not be a serious option.
It is not surprising that Israel and its American supporters want the US to deal with any and all threats to Israel's security. If their efforts to shape US policy succeed, Israel's enemies will be weakened or overthrown, Israel will get a free hand with the Palestinians, and the US will do most of the fighting, dying, rebuilding and paying. But even if the US fails to transform the Middle East and finds itself in conflict with an increasingly radicalised Arab and Islamic world, Israel will end up protected by the world's only superpower. This is not a perfect outcome from the Lobby's point of view, but it is obviously preferable to Washington distancing itself, or using its leverage to force Israel to make peace with the Palestinians.
Can the Lobby's power be curtailed? One would like to think so, given the Iraq debacle, the obvious need to rebuild America's image in the Arab and Islamic world, and the recent revelations about AIPAC officials passing US government secrets to Israel. One might also think that Arafat's death and the election of the more moderate Mahmoud Abbas would cause Washington to press vigorously and even-handedly for a peace agreement. In short, there are ample grounds for leaders to distance themselves from the Lobby and adopt a Middle East policy more consistent with broader US interests. In particular, using American power to achieve a just peace between Israel and the Palestinians would help advance the cause of democracy in the region.
But that is not going to happen � not soon anyway. AIPAC and its allies (including Christian Zionists) have no serious opponents in the lobbying world. They know it has become more difficult to make Israel's case today, and they are responding by taking on staff and expanding their activities. Besides, American politicians remain acutely sensitive to campaign contributions and other forms of political pressure, and major media outlets are likely to remain sympathetic to Israel no matter what it does.
The Lobby's influence causes trouble on several fronts. It increases the terrorist danger that all states face � including America's European allies. It has made it impossible to end the Israeli-Palestinian conflict, a situation that gives extremists a powerful recruiting tool, increases the pool of potential terrorists and sympathisers, and contributes to Islamic radicalism in Europe and Asia.
Equally worrying, the Lobby's campaign for regime change in Iran and Syria could lead the US to attack those countries, with potentially disastrous effects. We don't need another Iraq. At a minimum, the Lobby's hostility towards Syria and Iran makes it almost impossible for Washington to enlist them in the struggle against al-Qaida and the Iraqi insurgency, where their help is badly needed.
There is a moral dimension here as well. Thanks to the Lobby, the United States has become the de facto enabler of Israeli expansion in the Occupied Territories, making it complicit in the crimes perpetrated against the Palestinians. This situation undercuts Washington's efforts to promote democracy abroad and makes it look hypocritical when it presses other states to respect human rights. US efforts to limit nuclear proliferation appear equally hypocritical given its willingness to accept Israel's nuclear arsenal, which only encourages Iran and others to seek a similar capability.
Besides, the Lobby's campaign to quash debate about Israel is unhealthy for democracy. Silencing sceptics by organising blacklists and boycotts � or by suggesting that critics are anti-semites � violates the principle of open debate on which democracy depends. The inability of Congress to conduct a genuine debate on these important issues paralyses the entire process of democratic deliberation. Israel's backers should be free to make their case and to challenge those who disagree with them, but efforts to stifle debate by intimidation must be roundly condemned.
Finally, the Lobby's influence has been bad for Israel. Its ability to persuade Washington to support an expansionist agenda has discouraged Israel from seizing opportunities � including a peace treaty with Syria and a prompt and full implementation of the Oslo Accords � that would have saved Israeli lives and shrunk the ranks of Palestinian extremists. Denying the Palestinians their legitimate political rights certainly has not made Israel more secure, and the long campaign to kill or marginalise a generation of Palestinian leaders has empowered extremist groups like Hamas, and reduced the number of Palestinian leaders who would be willing to accept a fair settlement and able to make it work. Israel itself would probably be better off if the Lobby were less powerful and US policy more even-handed.
There is a ray of hope, however. Although the Lobby remains a powerful force, the adverse effects of its influence are increasingly difficult to hide. Powerful states can maintain flawed policies for quite some time, but reality cannot be ignored for ever. What is needed is a candid discussion of the Lobby's influence and a more open debate about US interests in this vital region. Israel's well-being is one of those interests, but its continued occupation of the West Bank and its broader regional agenda are not. Open debate will expose the limits of the strategic and moral case for one-sided US support and could move the US to a position more consistent with its own national interest, with the interests of the other states in the region, and with Israel's long-term interests as well.
10 March
Footnotes: Harvard School of Government RWP06-011]
JOHN MEARSHEIMER is the Wendell Harrison Professor of Political Science at Chicago, and the author of The Tragedy of Great Power Politics.
STEPHEN WALT is the Robert and Renee Belfer Professor of International Affairs at the Kennedy School of Government at Harvard. His most recent book is Taming American Power: The Global Response to US Primacy.