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May 19, 2005
From Ghettos to Frontiers
What
Will Happen After Israel's Withdrawl from Gaza
By
NEVE GORDON
Frontiers and Ghettos:
State Violence in Serbia and Israel
by James Ron,
University of California Press.
In what direction are Israeli-Palestinian
relations heading? Will the imminent withdrawal from the Gaza
Strip lead the two parties closer to a peace agreement? Or will
the fighting between the two peoples reemerge with a vengeance
once Jewish settlements have been dismantled and Israeli troops
redeployed? In order to gain insight into what lies ahead, it
is important first to analyze the use of violence in the region,
asking ourselves why the employment of force was less lethal
in certain areas than in others. This is precisely the question
James Ron asks in his daring and groundbreaking book Frontiers
and Ghettos.
Ron's basic and straightforward insight is that state violence
is dramatically shaped by the institutional setting in which
it takes place. A sociology professor at McGill University,
Ron holds the Canada Research Chair in Conflict and Human Rights.
He analyzes Serbian behavior in Bosnia, Kosovo, Sandzak and Vojvodina,
and Israeli behavior in the West Bank, Gaza Strip and Lebanon,
employing two spatial metaphors -- frontiers and ghettos. One
reads that the crucial difference between frontiers and ghettos
is the extent to which states control these arenas -- legally
and bureaucratically -- and feel a moral and political sense
of responsibility for their fate.
QUOTE "States enjoy an unrivaled level of control over the
ghetto's borders and territory, suppressing challenges to their
monopoly and force. Although this grants states some distinct
advantages, it also implies important responsibilities. Ghetto
residents are despised members of society, but both local and
international rules stipulate that the state bears substantial
responsibility for their welfare. Frontiers, by contrast, are
perched on the edge of core states and are not fully incorporated
into their zone of control. States do not dominate frontiers
as they do ghettos, and they are not bound by the same legal
and moral obligations. In times of crisis and uncertainty, frontiers
more easily become sites of ethnic cleansing."
In others words, ghettos are densely institutionalized by the
core state, since they are within its legal sphere of influence,
and serve as repositories for unwanted and marginalized populations.
Frontiers, on the other hand, are distinguished from the core
state by clear boundaries, and are only thinly institutionalized
arenas. The different institutional settings determine the kind
of violence employed. Whereas ghettos are characterized by ethnic
policing, mass incarceration and ongoing harassment, frontiers
are more prone to brutal and lawless violence. State violence,
Ron claims, is organized very differently at the core, within
the bureaucratic-legal zone of power, than it is in regions which
are not incorporated into the core state's institutional apparatus.
In the section that deals with Israel, Ron's research concentrates
on the first Intifada (December 1987 to 1993). His goal
is to explain "why Israel engaged in ethnic policing rather
than ethnic cleansing during the Palestinian uprising, despite
the potential for more despotic measures." It is within
this context that he distinguishes between the West Bank and
Gaza Strip, which he characterizes as a ghetto, and Lebanon,
which he considers to be Israel's frontier.
Ron begins, however, by reminding his readers that in 1948 "Jewish
troops participated in the often forced removal of some 750,000
Palestinians over international borders in a campaign that today
would be termed ethnic cleansing." He goes on to show that
Israel has employed much more lethal methods on its frontier
-- Lebanon -- than it has in the Occupied Territories. In the
fifteen-day operation dubbed Grapes of Wrath (1996) the Israeli
air-force carried out 600 sorties, the military fired 25,000
artillery shells, killed 154 civilians, and displaced 400,000
Lebanese. Three years earlier, in Operation Accountability, Israel
killed 120 civilians and displaced 300,000 more. Ron traces these
operations to the 1970s, showing how the more recent military
campaigns are no different from operations Israel carried out
in June 1974 and May 1975. He also discusses the Litani operation
of 1978, as well as the Lebanon war and its aftermath, highlighting
some of the similarities to the Serbian experience in Sand ak,
particularly Israel's use of the Phalange militias and the South
Lebanese Army.
Ron concludes this section by noting that Lebanon has always
been external to "Israel's formal zone of responsibility,
separated by a sovereign border from the norms and laws of Israeli
state and society. As Israeli rights group B'tselem noted, the
Israeli public debate almost completely ignored the suffering
and injustice inflicted on Lebanese civilians,' suggesting that
unlike the West Bank and Gaza Palestinians, Lebanese civilians
were not part of the collective Israeli consciousness.'"
Put differently, if Israel had employed the same methods in
the Occupied Territories as the ones used in Lebanon, it would
have been "tearing at the fabric of its own state."
Whereas the Israeli military in Lebanon was distant and ferocious,
striking with great intensity but making little effort to penetrate
and manage Lebanese society, Ron shows that in the West Bank
and Gaza Israel created a system of control, which was devised
to monitor and circumscribe each and every aspect of Palestinian
life. Shortly after the 1967 War Israel realized that it could
not properly control the Occupied Territories if it did not seal
its boundaries from external infiltrations of fedayeen
(Palestinian guerrilla fighters). Simultaneously, it rapidly
worked to suppress internal resistance, and began rationalizing
its mechanisms of control by installing a complex bureaucratic-legal
apparatus within the regions it occupied. It also incorporated
Palestinian laborers into the Israeli workforce.
Ron illustrates how the military government monitored Palestinian
society, surveying the precise number of "licensed carpenters,
printing presses, fire trucks and water wells." There were
even detailed inventories of Palestinian workshops for cement,
furniture, cigarettes, soap, metals, olive products and sweets.
"Nothing was too small to count, and no object was too minor
to register. Perhaps most significant was the state's registration
of the Palestinian population itself and its creation of detailed
document-verification procedures." The crucial point is
that by inscribing Palestinian lives into Israel's bureaucratic
registries, they became objects of state responsibility. The
"ghettoization" of the West Bank and Gaza functioned,
in other words, as a mechanism of restraint, limiting Israel's
options with respect to the employment of violence.
As we will see momentarily, the more recent process whereby the
Sharon government has been turning the Occupied Territories into
a frontier entails a qualitative change in the kind of violence
Israel uses. Here, though, it is important to underscore that
the regulations Israel set up in the territories served as the
nuts and bolts of a controlling system until the Oslo process.
And while Israel used harsh and painful violence, its actions
were subordinate to the "rule of law" and therefore
constrained. As Frontiers and Ghettos underscores, the
Israeli security forces employed "police style" methods
in their attempt to quell the first uprising, incarcerating tens
of thousands of Palestinians while subjecting thousands of them
to torture; Israel refrained, however, from employing the kinds
of methods it used in Lebanon. Ron's theoretical model accordingly
helps explain why, despite Israel's overwhelming firepower and
the constant confrontations between demonstrators and the military
during the first Intifada, "soldiers killed only
204 Palestinians between December 9, 1987, and November 15, 1988,
the most intense phase of the uprising."
While Ron's argument is persuasive, it is crucial to keep in
mind that the institutional apparatus which constrains the use
of violence, is, in and of itself, a form of violence. Ron fails
to emphasize this dimension in his book, thus eliding an important
aspect of Israel's occupation. This form of violence may not
be as lethal, but its effects are often no less devastating.
In the West Bank and Gaza, for example, one of the consequences
of the bureaucratic-legal system that Israel introduced has been
the complete fragmentation of Palestinian society. Social fragmentation
may, at first, appear to be less brutal than artillery, but in
many respects its long-term ramifications are more destructive
to the fabric of Palestinian society.
Frontiers and Ghettos is important not only because it
helps us understand the past, but also because it provides us
with tools to analyze the political processes that are currently
unfolding in the region. One of these processes is the ongoing
trend of transforming the West Bank and Gaza from ghettos into
frontiers. This change began immediately after Oslo, when Israel
started curtailing its institutional apparatus in these regions.
In 1994, the Palestinian Authority willingly took on the role
of managing the daily lives of the inhabitants in the Occupied
Territories. Within a matter of months, the civil institutions
needed to administer populations in modern societies -- inter
alia education, health and welfare -- were passed from Israel
to the hands of the fledgling authority, which was also given
some limited form of sovereignty. Israel, however, maintained
control over security matters (at least in areas B and C which
comprise 80 percent of the territory). The borders separating
Israel proper (pre-1967 borders) from the West Bank and Gaza
became much clearer, so much so that access to the Strip was
denied to all Israelis except for soldiers and settlers. Even
Knesset members can no longer enter Gaza. The overwhelming majority
of Palestinian laborers who had been incorporated into Israel's
workforce, and were therefore part of the daily scenery inside
Israel, disappeared as their right of entry into Israel was revoked.
The limited -- and albeit very hierarchical -- integration of
the two societies unraveled, disintegrated, and a sharp bifurcation
swiftly emerged.
Changes in the Gaza Strip occurred
earlier than in the West Bank and have been more dramatic, particularly
following Prime Minister Ariel Sharon's decision to withdraw
from the area. According to B'tselem, the level of violence has
increased dramatically. In the first ten months after the official
decision to dismantle the settlements and withdraw from the Strip,
Israeli forces killed 563 Palestinians in Gaza, while during
the previous ten months period 264 were killed. But even before
Sharon's decision to pull out of Gaza, Israel's repertoires of
violence were modified and in no way compare to those used during
the years preceding the Al-Aqsa Intifada. If in the thirteen
year period between December 1987 and September 2000, 1359 Palestinian
civilians were killed by Israeli security forces, in the four
and a half years that followed over 3,100 have been killed.
To be sure, the fact that in this Intifada the Palestinians
have been using firearms and suicide bombers has had an impact
on the level of violence, but forms of Palestinian resistance
only partially explain Israel's violence. Moreover, in June 2004,
Ha'aretz journalist Akiva Eldar revealed that the top Israeli
security echelons were interested in "fanning the flames"
during the Intifada's first weeks. He cites Amos Malka,
who was the military general in charge of intelligence at the
time, as saying that during the first month, when the uprising
was still mostly characterized by non-violent popular protests,
the military fired 1.3 million bullets in the West Bank and Gaza.
The idea was to intensify the levels of violence, thinking that
this would lead to military victory.
Israel now regularly uses F-16 jets, apache helicopters and tanks
to bomb Palestinian cities, a form of violence that was hardly
-- if ever -- utilized in the West Bank and Gaza in the past.
Extra-judicial executions have become common practice as have
massive demolitions of houses. In the Gaza Strip alone Israel
has destroyed 2,548 houses since the beginning of the second
Intifada, leaving over 24,000 people homeless. The southern
Lebanese peasants could, at least, flee northwards, a non-existent
option for the inhabitant of Gaza.
Frontiers and Ghettos also suggests that alongside the
transformation of the means of violence one should expect to
see a corresponding change in Israel's sense of moral responsibility
towards the occupied population. And indeed, it is no longer
the case that Israeli liberals underscore their country's ethical
obligations toward their occupied neighbors, as they did when
these regions were ghettos. In many ways the Palestinians have
become Lebanese. Israel is now less interested in penetrating
and managing the lives of the Palestinians and is more willing
to employ brutal violence to quell any resistance. Insofar as
this is the case, it is likely that at least in the near future
the violence in the West Bank and Gaza will only become more
ferocious.
Neve Gordon, who teaches politics at Ben-Gurion
University in Israel, is a visiting scholar in the Center for
Middle East Studies at the University of California, Berkeley.
He is the editor of From
the Margins of Globalization: Critical Perspectives on Human
Rights and can be reached at nevegordon@gmail.com
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