It’s time for Plan B.
CRIS BOURONCLE/AFP/Getty Images
Peace's chance? U.S. Secretary of State Hillary Clinton discusses the situation in Gaza.
Addressing
the international conference gathered in Egypt this week to discuss aid to
Gaza, U.S. Secretary of State Hillary Clinton made clear that her inclination
is to continue precisely where the Bush administration left off -- using
assistance to shore up the Palestinian government based in Ramallah, ignoring
the Palestinian government based in Gaza, and hoping that the Ramallah
government can realize enough success to help lead the path back to a two-state
solution.
But if the
past two years have shown nothing else, it is that showering Palestinian
Authority President Mahmoud Abbas and Prime Minister Salam Fayyad with help,
hoping Hamas will disappear, and going through the motions of two-state
diplomacy only opens the door to a darker future.
It is time
to choose a different path.
Far from
the limelight, a less ambitious diplomatic process, overshadowed by the 2007 Annapolis
conference hoopla, was born in the Bush administration's last
year. Gritty, difficult, and serious negotiations took place between
Israel and Hamas -- talks that, eventually, were tolerated by the United
States. They were indirect and barely acknowledged, and they specifically
excluded mutual recognition and permanence. But they may provide a more
realistic place for Obama to start.
The talks
deal with some familiar issues -- the terms of Israeli withdrawal, the nature
of the cessation of hostilities, the role of international forces, the release
of prisoners, the flow of goods, the patrol of borders, and the supply of
weapons. But negotiations are now punctuated with violence rather than posited
as an alternative, and all the while each of the two parties proudly proclaims its
rejection of the other's legitimacy.
There may
be no Nobel Prize to be had here, no triumphant hugs or handshakes on a dais
mobbed by photographers. Yet making sure these real negotiations succeed -- and
only then immediately worrying about the next step -- is a far more promising
approach than pretending that the parties can be cajoled, muscled, and jawboned
into a final and comprehensive settlement anytime soon.
The first
step must be to establish a cease-fire that builds on the common interests of
both Israel and Hamas to avoid fighting in the short term. The last such cease-fire,
negotiated in June 2008, was badly designed -- as the recent war in Gaza made
clear. The agreement was unwritten, and the two sides had different
interpretations of what it contained. A new cease-fire should be clear and
perhaps even written. Mediators must be willing to make an agreement more
attractive to both sides to maintain (Hamas can be enticed by some opening of
the border with Egypt; Israel will demand serious efforts to halt the supply of
arms to Hamas).
Such a
cease-fire would admittedly be more difficult to conclude than the last one. There's
an important general lesson here: Everywhere it turns, the United States is struggling
merely to recover what it could have had for a much lower cost, and much less
effort, earlier.
The Bush
administration squandered the quiet provided by the last cease-fire on futile
diplomacy among weak and lame-duck leaders. The Obama administration
should avoid making the same mistake.
Rather
than chasing an elusive peace, George Mitchell, the U.S. special envoy to the
Middle East, should focus on stretching a short-term cease-fire into a medium-term
armistice -- a modus vivendi in which Israelis and Palestinians live without
hurting each other for five to 10 years. An armistice will have to codify
a situation that both sides find tolerable for a while. Hamas could operate
freely and govern; Israel could live free from rocket fire and other attacks on
civilians. Neither side could be allowed to use the period to impose permanent
changes: Israel would have to accept a real settlement freeze, and Hamas would
have to live with an internationally patrolled arms embargo.
Of course,
such a U.S. shift would immediately provoke severe criticisms that it violates
the long-standing taboo on negotiating with a terrorist organization. Like many
taboos, this one obscures thinking more than it clarifies.
First, the
original rationale for refusing to negotiate with Hamas is that doing so would
encourage terrorism. Yet it was only after Hamas fired rockets on Israeli towns,
after all, that Israel sought to negotiate a cease-fire. Perversely, when Hamas
wishes to practice regular diplomacy rather than blackmail against civilians,
it is treated fully as a pariah.
But more importantly,
the argument against "engaging Hamas" completely misses the point. The
important question is not whether the United States enters into formal
discussions with the Islamist group, but what the United States says and does
when other countries attempt to speak with Hamas. On this point, even the Bush
administration itself quietly shifted last year when it endorsed Egyptian
mediation between Fatah and Hamas.
An
armistice is the most that can be hoped for now, but it will not work forever.
It should therefore lead peacemakers to focus on two long-term tasks.
The first
task is encouraging an effort to rebuild a Palestinian political system capable
of making decisions. That means tolerating reconciliation between Hamas and
Fatah -- as long as it leads in the long run to elections and rotation in power
rather than permanent power-sharing and paralysis.
The second
order of business is confronting each side with the need to make hard choices. Faced
with options, both Israelis and Palestinians have a habit of selecting "all of
the above." Israel has raced to build settlements while talking of a two-state
solution; Hamas has pursued diplomacy and governing while also continuing its
bloody version of "resistance." Over the short term, it often makes sense
for politicians to preserve options. But over the long run, the result has been
fatal to any diplomatic process.
The only
alternative offered at present is to negotiate a two-state solution now as if
there were a viable Palestinian leadership, no Hamas, no Palestinian civil war,
and no ongoing settlement activity. And we've seen how that has turned out.