Sunday, February 15, 2009

As Prospect of Two State Peace Recedes, New U.S. Policies are Urgent

Settlement Report | Vol. 19 No. 1 | January-February 2009
By Geoffrey Aronson
January-February 2009 Settlement Report

Israel’s assault on Gaza, after the breakdown of a six month cease-fire with Hamas, offers the most recent evidence of the breakdown of the diplomatic process ushered in by the Oslo agreements in 1993 and the declining prospect of a peace agreement based upon its principles. It is yet another signal that, beginning with Ariel Sharon’s “disengagement” from Gaza in 2005, the focus of the Israel Palestine conflict is now urgently centered on the Gaza Strip, and more broadly, on the contentious relationship between Israel and Hamas. The election of Barack Obama offers the international community the opportunity for some new thinking about how to re-energize its unfulfilled commitment to end the occupation and create a sovereign, independent Palestine at peace with Israel. The selection of former senator George Mitchell, a mediator of international standing, as Presi−dent Barack Obama’s special envoy is widely viewed as an inspired choice. As Mitchell begins a much needed reas−sess−ment of the U.S. led effort to strengthen Abu Mazen and weaken Hamas, he inherits a policy based upon the following principles:

-- denying Hamas’s role in Palestin−ian affairs, demanding its adherence to the Quartet principles (recognition of Israel, foreswearing the use of force, and accepting the Oslo Annapolis agreements); refusing to accept its rule in Gaza, and opposing national political reconciliation;



-- acquiescing in practice to Israel’s diplomatic and security agenda on the West Bank while offering only rhetorical objection to the system of checkpoints and settlement construction;



-- supporting Israel’s security agenda in Gaza, and the draconian Israeli and Egyptian restriction of imports sufficient only to meet minimal humanitarian needs, and supporting reconstruction aid on condition that it strengthens Abu Mazen and weakens Hamas;

-- continuing the West Bank effort to strengthen Abu Mazen by acting as paymaster to the Palestinian Authority (PA), supporting a “counterinsurgency” strategy against Hamas, and prodding Israel to make marginal concessions to PA security services as part of a “performance based” effort aimed at moving toward Palestinian independence and an end to occupation.

Continuing U.S. support for policies that fail to acknowledge the real changes among the principle players risks making Washington increasingly irrelevant to the march of events. Israel and Hamas in particular are pursuing agendas that differ markedly from those promoted by the international community. In the absence of a revitalized and re-oriented American-led effort, their confrontation will define the policy choices of the future. It may still be possible for the international community to bring an end to Israel’s occupation and to enable the creation of a unified Palestinian state next to Israel under secular Palestinian leadership that enjoys the support of both Israeli and Palestin−ian majorities. To do so, however, will require a dramatic departure from prevailing assumptions and policies.

The ongoing battle in Gaza has made the environment for such an effort far more difficult. Israel increasingly focuses on Hamas as its primary Palestinian threat and principal Palestinian interlocutor, rather than Fateh and Abu Mazen. The latter in Israel’s view have been “domesticated” by the peace process. Their interests, therefore, do not have to be seriously addressed.

Israel waged war to force the Hamas-led government and security forces in Gaza to accommodate a security agenda defined by Israel—to cease all missile strikes against Israel without conceding Hamas’s demand to open Gaza’s borders, especially to Egypt (at Rafah). Hamas, in turn, demands an end to the economic “siege” and open borders as the price of a durable ceasefire.

The Palestinian leadership in Ramallah failed to win Israeli support for its restoration in Gaza. Israel’s decision not to destroy the Hamas regime dispelled the illusion fortifying many in Fateh that Israel would support their return to power lost in the January 2005 election and the June 2007 debacle in Gaza. The war demonstrated Israel’s lack of interest in promoting its declining fortunes. This view informs Israeli policy on issues now at the center of international concern—Gaza’s border regime and reconstruction aid. Fateh, weakened by the war, should be prepared to entertain proposals that will win it a role in the provision of aid to Gaza and border operations commensurate with its reduced power. In the West Bank, European, U.S., and Arab officials continue to make the case for the need to strengthen Abu Mazen through Israeli security if not political concessions. In today’s environment, Israel is less likely than ever to follow this international agenda.

The war in Gaza placed Hamas at the center of a new page in the history of the century old Palestinian battle against Israel. It survived the Israeli attack and successfully defended Gaza against an Israeli re-occupation. In contrast, Abu Mazen, and more significantly Fateh, were mere spectators in this latest Palestinian battle against Israel. In the aftermath of the war, Hamas’s control of the government, bureaucracy, and security arms in Gaza is undiminished. The “movement” remains intact despite its leadership losses, and its decision making capacity has not been compromised. The integrity of Hamas’ s security forces has been impaired but there is ready evidence that they continue to exercise a monopoly of force in Gaza. They remain capable of projecting power, however feeble, against Israel. Hamas is also demonstrating an ability to provide for the burgeoning humanitarian requirements of the Gaza population, despite the continuation of the “siege.” This situation establishes a threshold far above what Hamas leaders defined as victory in the midst of the war.

Hamas’ policy goals today remain almost identical to the prewar period:

-- recognition by Israel, Egypt, and the international community as the responsible power in Gaza, without submitting to external dictats (the Quartet principles);

-- maintaining a credible “resistance option,” not to defeat Israel, which it recognizes is impossible, but rather to alter the terms of the relationship with Israel in its favor;

-- ending the siege and restoring functionality of Gaza’s borders with Israel and Egypt for imports and exports so that normal economic activity can resume;

-- opening the Rafah border with Egypt as a strategic goal in order to establish a link with the world independent of Israel;

-- resolving the prisoner exchange issue with Israel according to its suggested formula.

As George Mitchell has noted, the immediate challenges facing the new U.S. administration have been defined by the bitter contest between Israel and Hamas. The war has forced Israel to reconsider its previous policies on prisoner release and border operations. There is as yet no agreement on a cease-fire or the release of prisoners, notably the Israeli corporal Gilad Shalit, because there is no agreement on ending the draconian import export regime imposed by Israel with international support. Gaza’s borders remain all but closed because Israel longs to divide Israel and the West Bank from Gaza and end all economic ties with the area, no matter which Palestinians rule there, and because of Egypt’s determination to resist Israel’s intention to move Gaza into its economic and security orbit. Nevertheless, the prospects for fragile understandings on borders and prisoner release on terms closer to those long favored by Hamas are now better than before the war.

The diplomatic dimension of the Annapolis process has exhausted itself. The deafening silence that greeted lame-duck Prime Minister Ehud Olmert’s report to Mitchell of his conditional offer of Palestinian statehood and settlement evacuation attests to Israel’s disinterest in addressing final status issues under the Annapolis banner. Israel’s uncertain election results make a credible resumption of this process even more problematic.

Little remains of the Annapolis effort except the security element managed by U.S. and European security officials in cooperation with Israeli and Palestinian security forces. During the war in Gaza, PA security forces in the West Bank performed well and according to script under extreme and unprecedented pressure in a successful effort to minimize public protest and unrest. Their motivation for doing so, however, was not so much a desire to protect Israeli interests or to safeguard Palestinians from IDF entry into the streets, as it was to demonstrate to the international community and particularly to the U.S. that Palestinians have upheld their part of the Oslo/Mitchell Commission/road map/Annapolis bargain and that they now expect a payoff in the form of more security space to call their own and real progress towards settlement evacuation, an end to occupation, and independence.
An American policy that results in the timely realization of these Palestinian national demands, which have been endorsed by the international community, is the only effective means for reviving the fortunes of secular Palestinian nationalists. Israel and Hamas have chosen another road. They are not waiting for Washington, but are creating a dynamic alternative to a moribund “peace process.”

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