America is about to enter a presidential election year. Although the outcome is of course impossible to predict at this stage, certain features of the campaign are easy to foresee. The candidates will inevitably differ on various domestic issues -- health care, abortion, gay marriage, taxes, education, immigration -- and spirited debates are certain to erupt on a host of foreign policy questions as well. What course of action should the United States pursue in Iraq? What is the best response to the crisis in Darfur, Iran's nuclear ambitions, Russia's hostility to NATO, and China's rising power? How should the United States address global warming, combat terrorism, and reverse the erosion of its international image? On these and many other issues, we can confidently expect lively disagreements among the various candidates.
Yet on one subject, we can be equally confident that the candidates will speak with one voice. In 2008, as in previous election years, serious candidates for the highest office in the land will go to considerable lengths to express their deep personal commitment to one foreign country -- Israel -- as well as their determination to maintain unyielding U.S. support for the Jewish state. Each candidate will emphasize that he or she fully appreciates the multitude of threats facing Israel and make it clear that, if elected, the United States will remain firmly committed to defending Israel's interests under any and all circumstances. None of the candidates is likely to criticize Israel in any significant way or suggest that the United States ought to pursue a more evenhanded policy in the region. Any who do will probably fall by the wayside.
This observation is hardly a bold prediction, because presidential aspirants were already proclaiming their support for Israel in early 2007. The process began in January, when four potential candidates spoke to Israel's annual Herzliya Conference on security issues. As Joshua Mitnick reported in Jewish Week, they were "seemingly competing to see who can be most strident in defense of the Jewish State." Appearing via satellite link, John Edwards, the Democratic party's 2004 vice presidential candidate, told his Israeli listeners that "your future is our future" and said that the bond between the United States and Israel "will never be broken." Former Massachusetts governor Mitt Romney spoke of being "in a country I love with people I love" and, aware of Israel's deep concern about a possible nuclear Iran, proclaimed that "it is time for the world to speak three truths: (1) Iran must be stopped; (2) Iran can be stopped; (3) Iran will be stopped!" Senator John McCain (R-AZ) declared that "when it comes to the defense of Israel, we simply cannot compromise," while former House Speaker Newt Gingrich (R-GA) told the audience that "Israel is facing the greatest danger for [sic] its survival since the 1967 victory."
Shortly thereafter, in early February, Senator Hillary Clinton (D-NY) spoke in New York before the local chapter of the powerful American Israel Public Affairs Committee (AIPAC), where she said that in this "moment of great difficulty for Israel and great peril for Israel ... what is vital is that we stand by our friend and our ally and we stand by our own values. Israel is a beacon of what's right in a neighborhood overshadowed by the wrongs of radicalism, extremism, despotism and terrorism." One of her rivals for the Democratic nomination, Senator Barack Obama (D-IL), spoke a month later before an AIPAC audience in Chicago. Obama, who has expressed some sympathy for the Palestinians' plight in the past and made a brief reference to Palestinian "suffering" at a campaign appearance in March 2007, was unequivocal in his praise for Israel and made it manifestly clear that he would do nothing to change the U.S.-Israeli relationship. Other presidential hopefuls, including Senator Sam Brownback (R-KS) and New Mexico governor Bill Richardson, have expressed pro-Israel sentiments with equal or greater ardor.
What explains this behavior? Why is there so little disagreement among these presidential hopefuls regarding Israel, when there are profound disagreements among them on almost every other important issue facing the United States and when it is apparent that America's Middle East policy has gone badly awry? Why does Israel get a free pass from presidential candidates, when its own citizens are often deeply critical of its present policies and when these same presidential candidates are all too willing to criticize many of the things that other countries do? Why does Israel, and no other country in the world, receive such consistent deference from America's leading politicians?
Some might say that it is because Israel is a vital strategic asset for the United States. Indeed, it is said to be an indispensable partner in the "war on terror." Others will answer that there is a powerful moral case for providing Israel with unqualified support, because it is the only country in the region that "shares our values." But neither of these arguments stands up to fair-minded scrutiny. Washington's close relationship with Jerusalem makes it harder, not easier, to defeat the terrorists who are now targeting the United States, and it simultaneously undermines America's standing with important allies around the world. Now that the Cold War is over, Israel has become a strategic liability for the United States. Yet no aspiring politician is going to say so in public, or even raise the possibility.
There is also no compelling moral rationale for America's uncritical and uncompromising relationship with Israel. There is a strong moral case for Israel's existence and there are good reasons for the United States to be committed to helping Israel if its survival is in jeopardy. But given Israel's brutal treatment of the Palestinians in the Occupied Territories, moral considerations might suggest that the United States pursue a more evenhanded policy toward the two sides, and maybe even lean toward the Palestinians.
Yet we are unlikely to hear that sentiment expressed by anyone who wants to be president, or anyone who would like to occupy a position in Congress. The real reason why American politicians are so deferential is the political power of the Israel lobby. The lobby is a loose coalition of individuals and organizations that actively works to move U.S. foreign policy in a pro-Israel direction. As we will describe in detail, it is not a single, unified movement with a central leadership, and it is certainly not a cabal or conspiracy that "controls" U.S. foreign policy. It is simply a powerful interest group, made up of both Jews and gentiles, whose acknowledged purpose is to press Israel's case within the United States and influence American foreign policy in ways that its members believe will benefit the Jewish state. The various groups that make up the lobby do not agree on every issue, although they share the desire to promote a special relationship between the United States and Israel. Like the efforts of other ethnic lobbies and interest groups, the activities of the Israel lobby's various elements are legitimate forms of democratic political participation, and they are for the most part consistent with America's long tradition of interest group activity.
Because the Israel lobby has gradually become one of the most powerful interest groups in the United States, candidates for high office pay close attention to its wishes. The individuals and groups in the United States that make up the lobby care deeply about Israel, and they do not want American politicians to criticize it, even when criticism might be warranted and might even be in Israel's own interest. Instead, these groups want U.S. leaders to treat Israel as if it were the fifty-first state. Democrats and Republicans alike fear the lobby's clout. They all know that any politician who challenges its policies stands little chance of becoming president.
The Lobby and the U.S. Middle East Policy
The lobby's political power is important not because it affects what presidential candidates say during a campaign, but because it has a significant influence on American foreign policy, especially in the Middle East. America's actions in that volatile region have enormous consequences for people all around the world, especially the people who live there. Just consider how the Bush administration's misbegotten war in Iraq has affected the long suffering people of that shattered country: tens of thousands dead, hundreds of thousands forced to flee their homes, and a vicious sectarian war taking place with no end in sight. The war has also been a strategic disaster for the United States and has alarmed and endangered U.S. allies both inside and outside the region. One could hardly imagine a more vivid or tragic demonstration of the impact the United States can have -- for good or ill -- when it unleashes the power at its disposal.
The United States has been involved in the Middle East since the early days of the Republic, with much of the activity centered on educational programs or missionary work. For some, a biblically inspired fascination with the Holy Land and the role of Judaism in its history led to support for the idea of restoring the Jewish people to a homeland there, a view that was embraced by certain religious leaders and, in a general way, by a few U.S. politicians. But it is a mistake to see this history of modest and for the most part private engagement as the taproot of America's role in the region since World War II, and especially its extraordinary relationship with Israel today.
Between the routing of the Barbary pirates two hundred years ago and World War II, the United States played no significant security role anywhere in the region and U.S. leaders did not aspire to one. Woodrow Wilson did endorse the 1917 Balfour Declaration (which expressed Britain's support for the creation of a Jewish homeland in Palestine), but Wilson did virtually nothing to advance this goal. Indeed, the most significant U.S. involvement during this period -- a fact-finding mission dispatched to the region in 1919 by the Paris Peace Conference under the leadership of Americans Henry Churchill King and Charles Crane -- concluded that the local population opposed continued Zionist inroads and recommended against the establishment of an independent Jewish homeland. Yet as the historian Margaret Macmillan notes, "Nobody paid the slightest attention." The possibility of a U.S. mandate over portions of the Middle East was briefly considered but never pursued, and Britain and France ended up dividing the relevant portions of the Ottoman Empire between themselves.
The United States has played an important and steadily increasing role in Middle East security issues since World War II, driven initially by oil, then by anti-communism and, over time, by its growing relationship with Israel. America's first significant involvement in the security politics of the region was a nascent partnership with Saudi Arabia in the mid-1940s (intended by both parties as a check on British ambitions in the region), and its first formal alliance commitments were Turkey's inclusion in NATO in 1952 and the anti-Soviet Baghdad Pact in 1954. After backing Israel's founding in 1948, U.S. leaders tried to strike a balanced position between Israel and the Arabs and carefully avoided making any formal commitment to the Jewish state for fear of jeopardizing more important strategic interests. This situation changed gradually over the ensuing decades, in response to events like the Six-Day War, Soviet arms sales to various Arab states, and the growing influence of pro-Israel groups in the United States. Given this dramatic transformation in America's role in the region, it makes little sense to try to explain current U.S. policy -- and especially the lavish support that is now given to Israel -- by referring to the religious beliefs of a bygone era or the radically different forms of past American engagement. There was nothing inevitable or predetermined about the current special relationship between the United States and Israel.
Since the Six-Day War of 1967, a salient feature -- and arguably the central focus -- of America's Middle East policy has been its relationship with Israel. For the past four decades, in fact, the United States has provided Israel with a level of material and diplomatic support that dwarfs what it provides to other countries. That aid is largely unconditional: no matter what Israel does, the level of support remains for the most part unchanged. In particular, the United States consistently favors Israel over the Palestinians and rarely puts pressure on the Jewish state to stop building settlements and roads in the West Bank. Although Presidents Bill Clinton and George W. Bush openly favored the creation of a viable Palestinian state, neither was willing to use American leverage to make that outcome a reality.
The United States has also undertaken policies in the broader Middle East that reflected Israel's preferences. Since the early 1990s, for example, American policy toward Iran has been heavily influenced by the wishes of successive Israeli governments. Tehran has made several attempts in recent years to improve relations with Washington and settle outstanding differences, but Israel and its American supporters have been able to stymie any détente between Iran and the United States, and to keep the two countries far apart. Another example is the Bush administration's behavior during Israel's war against Lebanon in the summer of 2006. Almost every country in the world harshly criticized Israel's bombing campaign -- a campaign that killed more than one thousand Lebanese, most of them civilians -- but the United States did not. Instead, it helped Israel prosecute the war, with prominent members of both political parties openly defending Israel's behavior. This unequivocal support for Israel undermined the pro-American government in Beirut, strengthened Hezbollah, and drove Iran, Syria, and Hezbollah closer together, results that were hardly good for either Washington or Jerusalem.
Many policies pursued on Israel's behalf now jeopardize U.S. national security. The combination of unstinting U.S. support for Israel and Israel's prolonged occupation of Palestinian territory has fueled anti-Americanism throughout the Arab and Islamic world, thereby increasing the threat from international terrorism and making it harder for Washington to deal with other problems, such as shutting down Iran's nuclear program. Because the United States is now so unpopular within the broader region, Arab leaders who might otherwise share U.S. goals are reluctant to help us openly, a predicament that cripples U.S. efforts to deal with a host of regional challenges. This situation, which has no equal in American history, is due primarily to the activities of the Israel lobby. While other special interest groups -- including ethnic lobbies representing Cuban Americans, Irish Americans, Armenian Americans, and Indian Americans -- have managed to skew U.S. foreign policy in directions that they favored, no ethnic lobby has diverted that policy as far from what the American national interest would otherwise suggest. The Israel lobby has successfully convinced many Americans that American and Israeli interests are essentially identical. In fact, they are not. Although this book focuses primarily on the lobby's influence on U.S. foreign policy and its negative effect on American interests, the lobby's impact has been unintentionally harmful to Israel as well. Take Israel's settlements, which even a writer as sympathetic to Israel as Leon Wieseltier recently called a "moral and strategic blunder of historic proportions."
Israel's situation would be better today if the United States had long ago used its financial and diplomatic leverage to convince Israel to stop building settlements in the West Bank and Gaza, and instead helped Israel create a viable Palestinian state on those lands. Washington did not do so, however, largely because it would have been politically costly for any president to attempt it. As noted above, Israel would have been much better off if the United States had told it that its military strategy for fighting the 2006 Lebanon war was doomed to fail, rather than reflexively endorsing and facilitating it. By making it difficult to impossible for the U.S. government to criticize Israel's conduct and press it to change some of its counterproductive policies, the lobby may even be jeopardizing the long-term prospects of the Jewish state.
The Lobby's Modus Operandi
It is difficult to talk about the lobby's influence on American foreign policy, at least in the mainstream media in the United States, without being accused of anti-Semitism or labeled a self-hating Jew. It is just as difficult to criticize Israeli policies or question U.S. support for Israel in polite company. America's generous and unconditional support for Israel is rarely questioned, because groups in the lobby use their power to make sure that public discourse echoes its strategic and moral arguments for the special relationship. The response to former President Jimmy Carter's Palestine: Peace Not Apartheid perfectly illustrates this phenomenon.
Carter's book is a personal plea for renewed American engagement in the peace process, based largely on his considerable experience with these issues over the past three decades. Reasonable people may challenge his evidence or disagree with his conclusions, but his ultimate goal is peace between these two peoples, and Carter unambiguously defends Israel's right to live in peace and security. Yet because he suggests that Israel's policies in the Occupied Territories resemble South Africa's apartheid regime and said publicly that pro-Israel groups make it hard for U.S. leaders to pressure Israel to make peace, a number of these same groups launched a vicious smear campaign against him. Not only was Carter publicly accused of being an anti-Semite and a "Jew-hater," some critics even charged him with being sympathetic to Nazis. Since the lobby seeks to keep the present relationship intact, and because in fact its strategic and moral arguments are so weak, it has little choice but to try to stifle or marginalize serious discussion.
Yet despite the lobby's efforts, a considerable number of Americans -- almost 40 percent -- recognize that U.S. support for Israel is one of the main causes of anti-Americanism around the world. Among elites, the number is substantially higher. Furthermore, a surprising number of Americans understand that the lobby has a significant, not always positive influence on U.S. foreign policy. In a national poll taken in October 2006, 39 percent of the respondents said that they believe that the "work of the Israeli lobby on Congress and the Bush administration has been a key factor for going to war in Iraq and now confronting Iran." In a 2006 survey of international relations scholars in the United States, 66 percent of the respondents said that they agreed with the statement "the Israel lobby has too much influence over U.S. foreign policy." While the American people are generally sympathetic to Israel, many of them are critical of particular Israeli policies and would be willing to withhold American aid if Israel's actions are seen to be contrary to U.S. interests.
Of course, the American public would be even more aware of the lobby's influence and more tough-minded with regard to Israel and its special relationship with the United States if there were a more open discussion of these matters. Still, one might wonder why, given the public's views about the lobby and Israel, politicians and policy makers are so unwilling to criticize Israel and to make aid to Israel conditional on whether its actions benefit the United States. The American people are certainly not demanding that their politicians support Israel down the line. In essence, there is a distinct gulf between how the broader public thinks about Israel and its relationship with the United States and how governing elites in Washington conduct American policy.
The main reason for this gap is the lobby's formidable reputation inside the Beltway. Not only does it exert significant influence over the policy process in Democratic and Republican administrations alike, but it is even more powerful on Capitol Hill. The journalist Michael Massing reports that a congressional staffer sympathetic to Israel told him, "We can count on well over half the House -- 250 to 300 members -- to do reflexively whatever AIPAC wants." Similarly, Steven Rosen, the former AIPAC official who has been indicted for allegedly passing classified government documents to Israel, illustrated AIPAC's power for the New Yorker's Jeffrey Goldberg by putting a napkin in front of him and saying, "In twenty-four hours, we could have the signatures of seventy senators on this napkin." These are not idle boasts. As will become clear, when issues relating to Israel come to the fore, Congress almost always votes to endorse the lobby's positions, and usually in overwhelming numbers.
Why Is it so Hard to Talk About the Israel Lobby?
Because the United States is a pluralist democracy where freedom of speech and association are guaranteed, it was inevitable that interest groups would come to dominate the political process. For a nation of immigrants, it was equally inevitable that some of these interest groups would form along ethnic lines and that they would try to influence U.S. foreign policy in various ways. Cuban Americans have lobbied to maintain the embargo on Castro's regime, Armenian Americans have pushed Washington to acknowledge the 1915 genocide and, more recently, to limit U.S. relations with Azerbaijan, and Indian Americans have rallied to support the recent security treaty and nuclear cooperation agreements. Such activities have been a central feature of American political life since the founding of the country, and pointing them out is rarely controversial.
Yet it is clearly more difficult for Americans to talk openly about the Israel lobby. Part of the reason is the lobby itself, which is both eager to advertise its clout and quick to challenge anyone who suggests that its influence is too great or might be detrimental to U.S. interests. There are, however, other reasons why it is harder to have a candid discussion about the impact of the Israel lobby.
To begin with, questioning the practices and ramifications of the Israel lobby may appear to some to be tantamount to questioning the legitimacy of Israel itself. Because some states still refuse to recognize Israel and some critics of Israel and the lobby do question its legitimacy, many of its supporters may see even well-intentioned criticism as an implicit challenge to Israel's existence. Given the strong feelings that many people have for Israel, and especially its important role as a safe haven for Jewish refugees from the Holocaust and as a central focus of contemporary Jewish identity, there is bound to be a hostile and defensive reaction when people think its legitimacy or its existence is under attack.
But in fact, an examination of Israel's policies and the efforts of its American supporters does not imply an anti-Israel bias, just as an examination of the political activities of the American Association of Retired Persons (AARP) does not imply bias against older citizens. We are not challenging Israel's right to exist or questioning the legitimacy of the Jewish state. There are those who maintain that Israel should never have been created, or who want to see Israel transformed from a Jewish state into a bi-national democracy. We do not. On the contrary, we believe the history of the Jewish people and the norm of national self-determination provide ample justification for a Jewish state. We think the United States should stand willing to come to Israel's assistance if its survival were in jeopardy. And though our primary focus is on the Israel lobby's negative impact on U.S. foreign policy, we are also convinced that its influence has become harmful to Israel as well. In our view, both effects are regrettable.
In addition, the claim that an interest group whose ranks are mostly Jewish has a powerful, not to mention negative, influence on U.S. foreign policy is sure to make some Americans deeply uncomfortable -- and possibly fearful and angry -- because it sounds like a charge lifted from the notorious Protocols of the Elders of Zion, that well-known anti-Semitic forgery that purported to reveal an all-powerful Jewish cabal exercising secret control over the world.
Any discussion of Jewish political power takes place in the shadow of two thousand years of history, especially the centuries of very real anti-Semitism in Europe. Christians massacred thousands of Jews during the Crusades, expelled them en masse from Britain, France, Spain, Portugal, and other places between 1290 and 1497, and confined them to ghettos in other parts of Europe. Jews were violently oppressed during the Spanish Inquisition, murderous pogroms took place in Eastern Europe and Russia on numerous occasions, and other forms of anti-Semitic bigotry were wide spread until recently. This shameful record culminated in the Nazi Holocaust, which killed nearly six million Jews. Jews were also oppressed in parts of the Arab world, though much less severely.
Given this long history of persecution, American Jews are understandably sensitive to any argument that sounds like someone is blaming them for policies gone awry. This sensitivity is compounded by the memory of bizarre conspiracy theories of the sort laid out in the Protocols. Dire warnings of secretive "Jewish influence" remain a staple of neo-Nazis and other extremists, such as the hate-mongering former Ku Klux Klan leader David Duke, which reinforces Jewish concerns even more.
A key element of such anti-Semitic accusations is the claim that Jews exercise illegitimate influence by "controlling" banks, the media, and other key institutions. Thus, if someone says that press coverage in the United States tends to favor Israel over its opponents, this may sound to some like the old canard that "Jews control the media." Similarly, if someone points out that American Jews have a rich tradition of giving money to both philanthropic and political causes, it sounds like they are suggesting that "Jewish money" is buying political influence in an underhanded or conspiratorial way. Of course, anyone who gives money to a political campaign does so in order to advance some political cause, and virtually all interest groups hope to mold public opinion and are interested in getting favorable media coverage.
Evaluating the role of any interest group's campaign contributions, lobbying efforts, and other political activities ought to be a fairly uncontroversial exercise, but given past anti-Semitism, one can understand why it is easier to talk about these matters when discussing the impact of the pharmaceutical lobby, labor unions, arms manufacturers, Indian-American groups, etc., rather than the Israel lobby. Making this discussion of pro-Israel groups and individuals in the United States even more difficult is the age-old charge of "dual loyalty." According to this old canard, Jews in the diaspora were perpetual aliens who could never assimilate and be good patriots, because they were more loyal to each other than to the country in which they lived. The fear today is that Jews who support Israel will be seen as disloyal Americans. As Hyman Bookbinder, the former Washington representative of the American Jewish Committee, once commented, "Jews react viscerally to the suggestion that there is something unpatriotic" about their support for Israel.
Let us be clear: we categorically reject all of these anti-Semitic claims. In our view, it is perfectly legitimate for any American to have a significant attachment to a foreign country. Indeed, Americans are permitted to hold dual citizenship and to serve in foreign armies, unless, of course, the other country is at war with the United States. As noted above, there are numerous examples of ethnic groups in America working hard to persuade the U.S. government, as well as their fellow citizens, to support the foreign country for which they feel a powerful bond. Foreign governments are usually aware of the activities of sympathetic ethnically based interest groups, and they have naturally sought to use them to influence the U.S. government and advance their own foreign policy goals. Jewish Americans are no different from their fellow citizens in this regard.
The Israel lobby is not a cabal or conspiracy or anything of the sort. It is engaged in good old-fashioned interest group politics, which is as American as apple pie. Pro-Israel groups in the United States are engaged in the same enterprise as other interest groups like the National Rifle Association (NRA) and the AARP, or professional associations like the American Petroleum Institute, all of which also work hard to influence congressional legislation and presidential priorities, and which, for the most part, operate in the open.
With a few exceptions, to be discussed in subsequent chapters, the lobby's actions are thoroughly American and legitimate.
We do not believe the lobby is all-powerful, or that it controls important institutions in the United States. As we will discuss in several subsequent chapters, there are a number of cases where the lobby did not get its way. Nevertheless, there is an abundance of evidence that the lobby wields impressive influence. The American Israel Public Affairs Committee, one of the most important pro-Israel groups, used to brag about its own power on its website, not only by listing its impressive achievements but also by displaying quotations from prominent politicians that attested to its ability to influence events in ways that benefit Israel. For example, its website used to include a statement from former House Minority Leader Richard Gephardt telling an AIPAC gathering, "Without your constant support ... and all your fighting on a daily basis to strengthen [the U.S.-Israeli relationship], it would not be." Even the out spoken Harvard law professor Alan Dershowitz, who is often quick to brand Israel's critics as anti-Semites, wrote in a memoir that "my generation of Jews...became part of what is perhaps the most effective lobbying and fundraising effort in the history of democracy. We did a truly great job, as far as we allowed ourselves, and were allowed, to go."
J. J. Goldberg, the editor of the Jewish weekly newspaper the Forward and the author of Jewish Power: Inside the American Jewish Establishment, nicely captures the difficulty of talking about the lobby: "It seems as though we're forced to choose between Jews holding vast and pernicious control or Jewish influence being nonexistent." In fact, he notes, "somewhere in the middle is a reality that none wants to discuss, which is that there is an entity called the Jewish community made up of a group of organizations and public figures that's part of the political rough-and-tumble. There's nothing wrong with playing the game like everybody else." We agree completely. But we think it is fair and indeed necessary to examine the consequences that this "rough-and-tumble" interest group politics can have on America and the world.