Cyclical Violence Is Laying the Groundwork for an Israeli-Palestinian Unity State
undefined and Stratfor Middle East and North Africa Analyst at RANE
Ryan Bohl
Stratfor Middle East and North Africa Analyst at RANE, Stratfor
9 MIN READMay 3, 2022 | 18:37 GMT
Palestinians run for cover during clashes with Israeli security forces near the Israeli settlement of Beit El in the occupied West Bank on April 11, 2022.
Palestinians run for cover during clashes with Israeli security forces near the Israeli settlement of Beit El in the occupied West Bank on April 11, 2022.
(ABBAS MOMANI/AFP via Getty Images)
Israelis and Palestinians are embroiled in yet another cycle of violence. This latest round, however, is more part of a long-term trend that is seeing Israel unintentionally build its own path toward a unity state that integrates at least some of the Palestinian territories. Though many steps still need to be taken before this scenario plays out, the formation of such a state — which the international community, led by the United States and Europe, could very well impose — is becoming increasingly likely amid Israel's continued settlement expansions in the West Bank, along with Israeli and Palestinian disinterest in a peace process.
An Unstable Rhythm
Right now, the Israeli-Palestinian peace process is paralyzed and looks set to stay that way. Israelis and Palestinians are both avoiding new talks, and no country on the international stage appears to have either the will or means to jump-start them. Instead, Israel is steadily expanding its settlements in the West Bank, and Palestinians are reacting to this expansion through protests, strikes and occasional violence. This violence subsequently provokes Israeli crackdowns, which either buy time until the next round of violence or escalate into direct conflict before de-escalating and restarting the cycle. What remains of the Oslo accords that began the Israeli-Palestinian peace process in 1993 are tattered in the wind behind these events; there is no strategic change in the balance of power between Israel and the Palestinian Territories, nor have Israel or the United States pushed to restart the peace process.
The international community, meanwhile, treats the simmering conflict as if it's frozen, with actors maneuvering around it. For example, the United States has not even appointed a special envoy to oversee the Israeli-Palestinian conflict, which has slipped toward the bottom of U.S. diplomatic priorities. And although the U.N. Human Rights Council recently accused Israel of apartheid, the label remains a symbolic measure that has no material effect. Additionally, parts of the Arab world, led by the United Arab Emirates, have normalized relations with Israel. Even the once-confrontational Turkey is now warming to Israel as Ankara tries to rebuild regional ties. Finally, the most recent bout of violence has produced diplomatic concern but little concrete action that would suggest the international community is about to make another push for peace. There are no summits planned, sanctions threatened, or even rumors of slow-cooking peace plans.
Even the local actors seem uninterested in negotiations. Israel's political spectrum is dominated by right-wing factions that favor settlement expansion and, eventually, the annexation of part or all of the West Bank, while leaving the Gaza Strip isolated. There is no credible Israeli coalition that could emerge to push for a new peace process, so even fresh elections would likely yield a similar, right-wing-dominated Knesset rather than another government like that led by Yitzhak Rabin, an Israeli prime minister who was assassinated in 1995 over his desire for peace with the Palestinian Territories. Instead, Israel is slowly inching toward expanded settlements in the West Bank without publicly acknowledging the effect of such settlements on the peace process in which Israel is still nominally engaged.
The Palestinians themselves are also divided and distracted. The Palestinian Authority (PA), which governs the West Bank, is focused on managing the looming succession crisis that will follow the death of 87-year-old President Mahmoud Abbas, while also trying to keep the West Bank's pandemic-battered economy functioning. The PA's approach to the Israeli-Palestinian peace process is the bare minimum, as it tries to prevent a major uprising while carrying out a half-hearted diplomatic campaign for international recognition. The PA has no realistic counters to settlement expansion, nor ways to convince the international community or Israel to seriously restart peace talks.
Then there are Hamas, which governs Gaza, and the Gazan militants, who have been corralled into the Gaza Strip. The groups have largely acquiesced that the best they can do is slowly challenge the PA for leadership of the Palestinian cause, while using the threat of their rockets to force Israel to ease the 16-year-old blockade. This is a far cry from achieving the goals of Hamas' charter, which still wants to replace Israel with an Islamist state.
But as organized actors avoid the Israeli-Palestinian peace process, the lack of a clear resolution to the conflict produces grassroots radicalization. Palestinians and increasingly far-right Israelis scuffle in East Jerusalem and around settlements in the West Bank, fighting a deadly, low-level partisan war without much central leadership. These skirmishes are the most unstable element of the Israeli-Palestinian conflict at the moment and have the potential to spark wars. Indeed, Palestinian activists trying to stop Israeli evictions of Arab residents in East Jerusalem began the chain of events that led to the Gaza War in 2021. But regardless of how many times low-level conflict sparks wider violence, the series of events and outcome of those events have so far been the same: Israel strikes Gaza, Hamas fires rockets, and, after a time of fighting, the two eventually agree to cease hostilities and restore humanitarian aid.
Why the Status Quo Cannot Last
In the long run, this cycle of violence and cease-fire deals is unsustainable. The PA can only accept so many new Israeli settlements before it faces a popular backlash strong enough to collapse it. And Hamas can only pick so many fights to win bare-bones humanitarian aid before its own popular legitimacy crashes. Israel, for its part, can also only quell backlash to settlement expansion so many times before the Palestinian public becomes too radical to de-escalate. And the international community can only ignore the problem for so long before Israeli-Palestinian tensions erupt into a full-scale war; even during last year's Gaza War, the United States was forced to engage in rapid phone diplomacy to de-escalate tensions in the hopes of avoiding such a greater military conflict.
But the next Gaza War won't mean a sudden restart of peace talks. The main outside actors — the United States, the Arab states and Europe — will again seek to de-escalate the conflict and return to the status quo. But in doing so, they will enable the very conditions that will cause the next war and, more importantly, enable Israel to continue slowly expanding settlements in the West Bank. Eventually, Israel's hold on the region will be so entrenched that actual annexation is a fact on the ground, if not an outright legal designation. And if Israel does annex part of the Palestinian territories, it will mean the end of the two-state process and possibly the end of the PA, which could be reduced to an Israeli-armed proxy force rather than a Palestinian state in waiting. Gaza would likely be left aside — isolated by Israel and Egypt, and treated as a geopolitical no-man's-land to be managed but never firmly solved.
If annexation (whether de jure or de facto) does happen, 2.9 million Palestinians in the West Bank would be left permanently stateless, controlled by the Israeli military and whatever is left of the PA. It would not be the exact same as South Africa's apartheid regime, under which different racial groups were legally mandated to live separately. But some voters in the United States and Europe, especially those who are already skeptical of if not outright hostile to Israel, may still see the seizure of Palestinian territory as inherently discriminatory against the Arab populations living there. As this ethnically-charged narrative takes hold, the politics of declining international support for Israel, which are already under demographic pressure as younger voters grow more skeptical of Israeli policies, would accelerate. And with the two-state solution buried, another alternative might start to gain prominence.
This possible alternative is a unity state that integrates parts or all of the Palestinian territories and Israel. The partial scenario would see Israel annex the West Bank's land and citizens. The estimated 2.9 million Palestinians living there would become full voting citizens, and while that would dramatically alter Israel's demographics, it would not by itself overturn the country's Jewish majority (there are around 6.8 million Jews in Israel and 1.8 million non-Jews, mostly Palestinian Arabs). With such a greater Arab political voice in the Knesset, Israel would be much less likely to carry out new displacement policies in the annexed West Bank, and land ownership would likely be frozen from that point on.
The unity state scenario would probably exclude Gaza since its 2 million residents would tip Israel's demographic balance away from Jewish citizens. Additionally, if Hamas or another Islamist militant political party could organize the full Palestinian vote, the annexation of Gaza might result in elections that begin to dismantle Israel. Even those in the United States and Europe who are critical of Israel's annexations are unlikely to favor that outcome, given Israel's special place as a homeland for Jewish people.
The partial unity state would appeal to the international community for several reasons:
It would sidestep the issue of Gaza, which will likely remain ruled by Hamas or some other militant faction for years to come.
It would dismantle the PA, which has not been effective in setting up the conditions for an eventual Palestinian state.
It would be most in line with the values of the principal international actors (namely the United States and Europe) by preserving Israel's democratic character, while also putting Arab Palestinians firmly inside a state in which they already have political representation.
It would build on the growing political influence of Arabs already living in Israel (the Islamist Ra'am party made history last year by becoming the first Arab party to join an Israeli government in decades).
But such a unity state would come up against strong domestic opposition inside Israel; based on the April 2021 election results, no Israeli government can be elected on the platform of adding millions of Arab voters to the rolls. Instead, the international community would likely have to use the United States and Europe's substantial economic and military leverage over Israel to force a government to accept such an influx of new voters.
Such a Western consensus would take time and probably more violence between Israelis and Palestinians before taking hold. In the United States, the Democratic Party and especially the pro-Israel Republican Party would each need to reshape their views of Israel's security — a process that would likely take several elections to come to pass. In Europe, where many governments are sensitive to their own histories of anti-Semitism, this process would take even longer, and policy shifts to pressure Israel into forming a partial unity state may only come after the United States takes such a stance.
The political narrative around the Israeli-Palestinian conflict, however, is nonetheless changing. The biggest event that could halt this trend is the restart of the two-state solution, though based on current factors, that remains unlikely.