Five weeks after Egyptian President Anwar Sadat flew to Jerusalem in November 1977, to accelerate Egyptian – Israeli negotiations, Begin brought to President Jimmy Carter, Israel’s response to Sadat’s peace initiative: political autonomy for the Palestinians in the West Bank and Gaza Strip. No Palestinian state was considered.
Having made human rights a central pillar of his foreign policy, Carter nonetheless seemingly ignored the abuses the Shah of Iran imposed upon his own people. Carter’s unctuous praise for the Shah at this state dinner angered Iranians in general, the clerical regime that replaced the Shah in 1979, resulting in negative consequences for Carter as he went into the 1980 presidential election.
As part of a joint statement, President Carter makes promises regarding US’ role in coming Political-Military Committee Talks in Cairo and Jerusalem. Likewise presenting a four-point formula for resolving the conflict, these statements contribute to US-Israeli tensions.
After a year in office, the Carter administration’s initiative to achieve a comprehensive Middle East peace between Israel and her Arab neighbors had stalled. At this White House meeting, Dayan reviewed Israel’s concerns about the West Bank and Brzezinski criticized Begin’s autonomy plan for the Palestinians. Begin and Carter’s mutual dislike over policy decisions continued to rise.
The documents reveal the very advanced state of Washington’s success in finding compromise language, of terms, and principles for achieving Egyptian and Israeli agreement on bi-lateral matters and about Palestinian West Bank self-rule (Begin’s ideas). Enormous compatible detail found with significant gaps remaining before the early September Camp Summit started. The US went to Camp David with outlines of possible agreements already drafted.
September 6, 1978, 6 p.m. Source: Israel State Archives/Box/A4314/1 Notes taken by Elyakim Rubinstein in the Israeli delegation’s discussion about a meeting Prime Minister Menachem Begin had with President Jimmy Carter and President Anwar Sadat…
September 7, 1978 Source: Israel State Archives/Box/A4314/1. Notes taken by Elyakim Rubinstein. By the time the American, Egyptian and Israeli delegations convened at Camp David, dozens of direct meetings had occurred between Israeli and Egyptian…
This meeting between Secretary of State Cyrus Vance and the Israeli delegation exemplified the injection of US interests and the application of concerted diplomatic pressure on Israel. The Israeli delegation at Camp David repeatedly refused the Carter administration’s vigorous efforts to introduce new formulations that might ultimately result in a Palestinian state.
In this meeting, the contents of which have not been released by the Foreign Relations of the United States (FRUS) but are available from the Israel State Archives (ISA), Begin clearly committed that “perhaps one military settlement” in the Jordan Valley would be established during the three months of the treaty negotiations. The extraordinarily contentious public dispute on the settlements would mar the diplomatic success of the Camp David Accords and add tension to the already fraught Carter-Begin relationship.
September 16, 1978 Source: Israel State Archives/Box/A4314/1. Notes taken by Simcha Dinitz. Discussion at Camp David, Maryland, on the use of U.N. Security Council Resolution 242 Top Secret Participants: Vance, Mondale, Brzezinski, Lewis, Dayan, Barak…
With President Carter mediating, Sadat and Begin agree to two outlines: a framework for a treaty between them and to define Palestinian “autonomy,” not self-determination or a state for them.
On the last day of negotiations at Camp David, President Carter asked Israel to accept the US position that Jerusalem was occupied territory; Dayan shot back in vigorous opposition, “if we had known that you would declare your position on Jerusalem, we would not have come here. This is the first time that we are confronted with an American position and specifically on the most sensitive issue. All your positions with regards to settlements are insignificant compared to our confrontation on the issue of Jerusalem.”
Begin agrees to halt settlements construction only for the duration of the peace treaty negotiations, not until Palestinian autonomy is applied. Carter erroneously believes that Begin made a promise to halt settlements.
This document is the only known official written transcript of the Begin-Carter discussion held at the end of the 1978 Camp David negotiations about any moratorium on Israel’s future settlement building. This record shows that Begin made no mention of a moratorium on settlement building for longer than three months. However, President Carter publicly, and Secretary of State Vance, in his memoirs, Hard Choices disagreed, believing the time mentioned was five years. For the remainder of Carter’s presidency, and for the rest of his post-presidency, the ‘building of Israeli settlements’ became a key point of contention in shaping his relationship with Israel.
Begin summarizes in great detail the contents and the political implications of the recently signed Camp David Accords. He reiterated Israel’s continued presence in Jerusalem, per its June 1967 Law, and clarified the terms used in the agreements.
Dayan made the case to the knesset that it should vote in favor of the Camp David Accords stipulating why doing so would be in Israel’s long term interest. He stated specifically that there was no promise for a Palestinian state, IDF forces would remain in the West Bank, negotiations for a peace treaty would continue, and these agreements were signed by the President of Egypt and the President of the US.
Embedded in the September 17, 1978 Camp David Accords were broad outlines for an Egyptian-Israeli Peace Treaty and a Framework for Palestinian autonomy. The details of both remained to be negotiated. Yet, obstacles to implementation of the Accords appeared almost immediately.
Nine days before the March 26, 1979 signing of the Egyptian-Israeli Treaty, US National Security Adviser, Zbigniew Brzezinski and Saudi Foreign Minister Prince Saud carried out an extraordinarily frank conversation. It included discussions about their bilateral relations, common fears of regional turbulence, and Sadat’s building estrangement from Arab leaders.
Carefully sandwiched between Carter’s high-risk presidential visit to Egypt and Israel on March 10, 1979—to solve contentious disagreements between Sadat and Begin—and the Peace Treaty signing on March 26, 1979, his administration gladly votes at the UN to deplore Israeli settlement building; including demographic changes in Jerusalem. After the Peace Treaty signing, until it leaves office in 1981, the Carter administration will continue to barrage Israel with condemnation for settlement building.
If Egypt breaches the Egyptian-Israeli Treaty, the US will enhance its presence in the area, provide military and economic supplies to Israel, and vote against any UN resolution contrary to the treaty.
Signed sixteen months after Sadat’s visit to Jerusalem, it calls for establishment of diplomatic relations, staged Israeli withdrawal from Sinai, and American security arrangements to support the bilateral treaty.
This was the second UNSC Resolution within four months supported by the Carter administration condemning Israel’s settlement building in the territories. It too greatly angered the Israeli government and American supporters of Israel.
It calls for “recognition of the legitimate rights of the Palestinian people, a just solution to the
Palestinian problem, the right to self-determination, [and] for PLO association to the negotiations.”
After the September 1978 Camp David Accords ended, the Carter administration diligently tried but failed to persuade Jordan’s King Hussein to be part of the follow-on negotiations over Palestinian autonomy. Carter felt Hussein was obstructionist; Hussein did not believe in 1978 that the US could halt Israeli settlement building as promised then. Hussein was correct. He also believed that Palestinian Autonomy might have a negative impact on many Palestinians living in his kingdom. Hussein was skeptical of the US capacity to negotiate for his national interests. At the same time, privately, Egypt’s Sadat was not displeased that the Jordanians remained out of favor with the US, and away from any negotiations that would detract from implementation of Israel’s promised full withdrawal from Sinai, per their 1979 Treaty. In 1988, Hussein stepped away from the West Bank’s future; in 1994, Jordan signed a peace treaty with Israel.
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