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Chapter 7 - The Lavon Affair:
Terrorism to Coerce the West
ONE: Start immediate action to prevent or postpone Anglo-Egyptian Agreement. Objectives are: one, cultural and information centers; two, economic institutions; three, cars of British representatives and other Britons; four, whichever target whose sabotage could bring about a worsening of diplomatic relations. TWO. Inform us on possibilities of action in Canal Zone. THREE. Listen to us every day at 7 o'clock on wavelength G.
This coded cable was sent to the Israeli spy ring which had been planted in Egypt many months before it was activated in July 1954. The ring originally was to serve as a fifth column during the next war. The cable was preceded by oral instructions given by Colonel Benjamin Givii, head of Israel's military intelligence, to an officer headed for Cairo to join the ring. These instructions were:
[Our goal is] to break the West's confidence in the existing [Egyptian] regime .... The actions should cause arrests, demonstrations, and expressions of revenge. The Israeli origin should be totally covered while attention should be shifted to any other possible factor. The purpose is to prevent economic and military aid from the West to Egypt. The choice of the precise objectives to be sabotaged will be left to the men on the spot, who should evaluate the possible consequences of each action ... in terms of creating commotion and public disorders. (13)
These orders were carried out between July 2 and July 27, 1954, by the network which was composed of about ten Egyptian Jews under the command of Israeli agents. Negotiations were at their height between Cairo and London for the evacuation of the Canal Zone, and between Cairo and Washington for arms supplies and other aid in connection with a possible U.S.-Egyptian alliance. British and American cultural and informational centers, British-owned cinemas, but also Egyptian public buildings (such as post offices) were bombed in Cairo and Alexandria. Suspicion was shifted to the Muslim Brothers, opponents of Nasser's regime. The Israeli ring was finally discovered and broken up on July 27, when one of its members was caught after a bomb exploded in his pocket in Alexandria.
On that same date Sharett, who knew nothing about the ring, was informed of the facts, and he began to collect evidence on the responsibilities of defense ministry and army officials. He did nothing beyond this, however, until October 5, when Cairo officially announced the imminent trial of the arrested saboteurs. Sharett then fully supported the campaign launched by Israel to present the case as an anti-Jewish frame-up by the Egyptian regime. On December 13, two days after the trial opened in Cairo, the prime minister denounced in the Knesset "the plot ... and the show trial . . . against a group of Jews . . . victims of false accusations."* His party's paper, Davar, went as far as to accuse the Egyptian government of "a Nazi-inspired policy." Horror stories of confessions extracted from the accused under torture circulated in the Israeli and international media. Sharett knew all this to be untrue. "In reality," he wrote in his diary on January 2, 1955, "except for the first two days of their arrest, when there was some beating, the treatment of our men was absolutely decent and humane." But publicly, he kept silent did not himself join the massive anti-Nasser chorus. Even the members of the cabinet, the president of the state, not to speak of the press, were not officially informed until some time in February, when rumors exploded on each street corner in Israel. Then the true story came out, that the government propaganda had been false from beginning to end, that the terrorist ring was indeed planted in Egypt by the Israelis and the only frame-up in question was the one invented against Egypt by the Sharett administration.
*See Appendix 4.
By the time the trial was over-two of the accused were condemned to death and executed, eight were condemned to long terms of imprisonment, while the three Israeli commanders of the operation succeeded in fleeing from Egypt and the fourth committed suicide other important facts became known to the prime minister. The technical question of who actually gave the order to activate the ring on a certain date was not to be cleared up until six years later, when a fourth or fifth inquiry commission finally and definitely exonerated Lavon from that responsibility, and established that Dayan, Peres, Givli and other, minor, "security" aides had forged documents and falsified testimonies in order to bring about the incrimination of the minister of defense. In 1954-55, Sharett anticipated the findings of that commission, figuring that the entire leadership of the security establishment was guilty of the affair. For him, the question of who gave the order was secondary to the necessity of pronouncing a judgment on the ideology and politics of lsrael's terrorism. Therefore, while he had no doubts about the guilt of the Dayan-Peres-Givli clique, to him Lavon's political responsibility was also inescapable.
[People] ask me if I am convinced that "he gave the order?' . . . but let us assume that Givli has acted without instructions ... doesn't the moral responsibility lie all the same on Lavon, who has constantly preached for acts of madness and taught the army leadership the diabolic lesson of how to set the Middle East on fire, how to cause friction, cause bloody confrontations, sabotage targets and property of the Powers [and perform] acts of despair and suicide" (10, January 1955, 639)
At this point, Sharett could have changed the history of the Middle East. Had he spoken frankly and directly to public opinion, which was deeply troubled by the events in Egypt the arrests, the trial, the executions, the contradicting rumors, the climate of intrigue surrounding the "Affair," tearing up the mask of secrecy, denouncing those who were responsible, exposing his true convictions in regard to Israel's terroristic ideologies and orientations, proposing an alternative, he could have created for himself the conditions in which to use the formal powers that he possessed to make a radical housecleaning in the security establishment. The impact of such an act would have probably been considerable not only in Israel itself but also in the Arab world, especially in Egypt. The downfall of Lavon on one hand and of the Ben Gurionist gang, headed by Dayan and Peres, on the other hand might have blocked Ben Gurion's return to power, and in the longer range, the Sinai-Suez war. Events since then would have taken a different course. (14)
As it was, though, the prime minister had neither the courage nor the temperament required for such an action. Moreover, he always feared that his "moderate" convictions would expose him to accusations of defeatism by the activists of aggressive Zionism. Thus, he took cover behind a variety of pretexts aimed at justifying his passivity even to himself, while in his heart he knew that his objective compliance with the rules of the game imposed by his enemies would boomerang, in the end, against his own career. An open admission of the facts, he tormentedly argued, could be damaging to the people on trial in Cairo; or it could damage lsrael's image in the world; or it could bring about a split in the Mapai party, to whose leadership Lavon and Ben Gurion as well as he belonged, causing it to lose its majority in the next elections. Inevitably, he ended up entangled in the plots woven around him by the opposing factions in the government, the army and the party. By mid-February, he had no other choice but to acquiesce to the unspoken ultimatum of Ben Gurion's men and appeal to the Old Man to reenter the cabinet as minister of defense in Lavon's place.
By January 1955, Sharett was well aware that the "Affair" was being used by Lavon and his friends on one hand, the Ben Gurionists on the other, and such extremist pro-militarist factions as Ahdut Ha'avoda (15)-to bring into the open the conflict between the "activist" line and the prime minister's "moderate" politics. He was informed also that Dayan was attempting to organize a coup d'etat and that Ben Gurion had given it his support. Other persons who had been approached (mainly from among Mapai's younger militants) had rejected the idea of a change of leadership through violence. (16) Dayan wanted to avoid at any cost being exposed by the investigation committee nominated by Sharett as one of those actually responsible for the "Affair." Lavon, on the other hand, threatened to commit suicide if the commission declared him guilty of having given the order.
Teddy [Kollek] painted a horrifying picture of the relations at the top of the security establishment. The Minister of Defense is completely isolated none of his collaborators speaks to him. During the inquiry, these collaborators [e.g., Peres, Dayan and a number of senior Ministry officials and army officers] plotted to blacken his name and trap him. They captured the man who came from abroad, [the commander of the unit in Egypt Avraham Zeidenberg, also known as "Paul Frank," "Flad," or "the third man"] who escaped from Egypt........ instructed him in detail how to answer, including how to lie to the investigators, and coordinated the testimonies so as to close the trap on Lavon. Teddy is convinced that Lavon must go immediately. Givli, too, must be dismissed, but Dayan, however, should not be touched for the time being, (9 ,January 1954, 637)
I would never have imagined that we could reach such a horrible state of poisoned relations, the unleashing of the basest instincts of hate and revenge and mutual deceit at the top of our most glorious Ministry [of Defense].
I walk around as a lunatic, horror-stricken and lost, completely helpless . .. . what should I do? What should I do? (10 January 1954, 639)
Isser [Harel, head of the Shin Bet, stung at the time because the "Affair" had been conducted by the military intelligence, without coordination with his organization] told me hair-raising stories about a conversation which Givli initiated with him proposing to abduct Egyptians not only from the Gaza Strip but also in Cyprus and Europe. He also proposed a crazy plan to blow up the Egyptian Embassy in Amman in case of death sentences in the Cairo trial. (14 January 1955, 654)
To Aharon Barkatt, then secretary general of Mapai, Sharett painted the following picture of Israel's security establishment:
Dayan was ready to hijack planes and kidnap [Arab] officers from trains, but he was shocked by Lavon's suggestion about the Gaza Strip. Maklef [who preceded Dayan as Chief of Staff] demanded a free hand to murder Shishakly but he was shaken when Lavon gave him a crazy order concerning the Syrian DMZ. (25 January 1955, 682)
He [Lavon] inspired and cultivated the negative adventuristic trend in the army and preached the doctrine that not the Arab countries but the Western Powers are the enemy, and the only way to deter them from their plots is through direct actions that will terrorize them. (26 January 1955, 685)
Peres shares the same ideology: he wants to frighten the West into supporting Israel's aims.
Chapter 8
Nasser: Coexistence with Israel is Possible.
Ben Gurion's Reply: Operation Gaza
Commenting on Israel's terrorist actions in Egypt, a U.S. embassy official in Cairo concluded on February 8, 1955 that "Sharett does not have control of the matters if such mad actions can be carried out."(17)
The State Department, the prime minister noted, feared subsequent Israeli provocations to sabotage U.S. relations with the Arab world following the signing of the Ankara-Baghdad pact. The American administration therefore attempted to move simultaneously in two directions in order to save what may be saved in the given situation: it placed pressure on Nasser to negotiate some kind of agreement with the Sharett government, and it offered the Zionist state a security pact. The Israeli premier noted that Kermit Roosevelt Jr. of the CIA was working on the creation of contacts between Israel and Egypt, and that he, Sharett, would nominate Yigael Yadin as his representative. (21 January 1955, 675)
[I met with] Roger Baldwin, the envoy of the U.S. League of Human Rights who visited Cairo.... Nasser talked to him about Israel, saying that he is not among those who want to throw Israel into the Mediterranean. He believes in coexistence with Israel and knows that negotiations will open some day. (25 January 1955, 680)
Cable from Eban. .. the U. S. is ready to sign an agreement with us whereby we shall make a commitment not to extend our borders by force, it will commit itself to come to our aid if we were attacked. (28 January 1955, 69 1)
Teddy [Kollek] brought a message from Isser's [head of the Security Services] men in Washington. The partners (the CIA) renew their suggestion for a meeting with Nasser, who does not regard the initiative of the meeting canceled because of the outcome of the trial .... He is as willing to meet us as before and the initiative is now up to Israel. (10 February 1955, 716)
[In regard to Washington's proposals for a U.S.-Israel security pact] I cabled Eban that we are willing to accept a clause which obliges us not to extend our borders by force, but we should in no way commit ourselves to desist from any hostile acts because this would mean closing the door on any possibility to carry out reprisal actions. (14 February 1955, 726)
This last phrase indicates that the news of the American proposals, and of possible negotiations between Sharett and Nasser had spread rapidly in the security establishment. The pressures on Sharett were stepped up. On February 17, Ben Gurion accepted the premier's invitation to return to the government as minister of defense. Quoting his landlady, Sharett noted on that day in his diary "that is the end of peace and quiet." Ten days later, in fact
Ben Gurion arrived.......with.......the Chief of Staff, who was carrying rolled up maps. I understood at once what would be the subject of the conversation.... The Chief of Staff's proposal was to hit an Egyptian army base at the entrance to the city of Gaza.... [He] estimated that the enemy losses would be about ten ... and that we have to be prepared for a few victims on our side. Ben Gurion insisted that the intention is not to kill but only to destroy buildings. if the Egyptians run away under the shock of the attack, there may be no bloodshed at all.
I approved the plan. The act of infiltration near Rehovot-30km from the border of the Gaza Strip-shocked the public and a lack of reaction is unacceptable.... In my heart I was sorry that the reprisal would be attributed [by the public] to Ben Gurion. After all, I did authorize a reprisal action ... when Ben Gurion was away from the government, and it was purely by chance that the operation did not take place. I would have approved this one, too, regardless of Ben Gurion being the Minister of Defense. (27 February 1955, 799-800)
I am shocked. The number [of Egyptian victims (39 dead and 30 wounded, including a 7-year-old boy,)] changes not only the dimensions of the operation but its very substance; it turns it into an event liable to cause grave political and military complications and dangers.... The army spokesman, on instructions from the Minister of Defense, delivered a false version to the press: a unit of ours, after having been attacked supposedly inside our territory, returned the fire and engaged a battle which later developed as it did. Who will believe us? ( I March 1955, 804)
It was the same old story: hit and run and try to fool the world-
The embassies should be instructed to condemn Egypt and not to be on the defensive.... Now there will be a general impression that while we cry out over our isolation and the dangers to our security, we initiate aggression and reveal ourselves as being bloodthirsty and aspiring to perpetrate mass massacres . . . it is possible that this outburst will be interpreted as the result of the army and the nation's outrage against the Powers' policy of ignoring the security of their state and will prevent the continuation of that policy to the bitter end. We, at least, have to make sure that this will be the common impression. . . . I dictated a briefing for the embassies .... It is desirable that the press should express the following: (a) Our public opinion had been agitated by the penetration of an Egyptian gang into a densely populated area and its attack on public transportation; (b) It seems that the clash developed into a serious battle as the exchange of fire was going on; (c) Egypt always claims that it is in a state of war with Israel which it demonstrates by acts such as blockade and murders and if there is a state of war, these are the results; (d) This event cannot be detached from the general background of the feeling of isolation which prevails in Israel in view of the West's alliances with the Arab states , . .. the most recent example of which is the Iraq-Turkey Pact whose anti-Israeli goals are particularly evident.
The last argument (d) needs very cautious handling in the sense that it should not be attributed to us and should be confided only to the most loyal [commentators] who must be warned not to appear inspired by our sources.
When I wrote these things [the instructions to the embassies] I still didn't know how crushing is the evidence-that was already published, refuting our official version. The huge amounts of arms and explosives, the tactics of the attack, the blocking and mining of the roads ... the precise coordination of the attack. Who would be foolish enough to believe that such a complicated operation could "develop" from a casual and sudden attack on an Israeli army unit by an Egyptian unit? . . .
I am tormented by thoughts as to whether this is not my greatest failure as Prime Minister. Who knows what will be the political and security consequence" (1 March 1955, 804-805)
One of the immediate and inevitable consequences was the following:
Yesterday . . . there was a conversation between [Salahl Gohar [the chief Egyptian representative to the mixed armistice commission] and [Joseph] Tkoa, The Egyptian representative informed [Tkoa] immediately that right after the previous meeting [which took place immediately following the Gaza attack] ... Nasser told him ... that he had had a personal contact with lsrael's Prime Minister and that there were good chances that things would develop in a positive way, but then came the attack on Gaza, and naturally now ... it's off.
Lawson [U.S. Ambassador] thinks that the reason for the warning and the threats [from Arab countries] is fear which has seized the Arab World due to Ben Gurion's comeback. The Gaza attack is interpreted as signaling a decision on our part to attack on all fronts. The Americans, too, are afraid that it will lead to a new conflagration in the Middle East which will blow up all their plans. Therefore, they wish to obtain from us a definite commitment that similar actions will not be repeated. (12 March 1955, 837)
But it was precisely to prevent a similar commitment that Ben Gurion rejoined the government, and he had no intention of changing his mind. On the contrary, on March 25, less than a month after the attack on Gaza, he proposed to the cabinet that Israel proceed to occupy the Gaza Strip, this time for good. The discussion lasted five whole days and ended with the ministers divided between the opponents of the proposal, headed by Sharett, and Ben Gurion's supporters. With five votes in favor, nine against it, and two abstentions, the plan was rejected, or perhaps simply postponed. The security pact offered by the U.S., however, had to be rejected, because-as Dayan explained in April 1955-"it would put handcuffs on our military freedom of action." He went into a detailed explanation on May 26, during a meeting with Israel's ambassadors in Washington (Abba Eban), Paris (Ya'acov Tsur) and London (Eliahu Eilat). The conversation was reported to Sharett later by Ya'acob Herzog and Gideon Raphael:
We do not need (Dayan said) a security pact with the U.S.: such a pact will only constitute an obstacle for us. We face no danger at all of an Arab advantage of force for the next 8-10 years. Even if they receive massive military aid from the West, we shall maintain our military superiority thanks to our infinitely greater capacity to assimilate new armaments. The security pact will only handcuff us and deny us the freedom of action which we need in the coming years. Reprisal actions which we couldn't carry out if we were tied to a security pact are our vital lymph ... they make it possible for us to maintain a high level of tension among our population and in the army. Without these actions we would have ceased to be a combative people and without the discipline of a combative people we are lost. We have to cry out that the Negev is in danger, so that young men will go there....
The conclusions from Dayan's words are clear: This State has no international obligations, no economic problems, the question of peace is nonexistent.... It must calculate its steps narrow-mindedly and live on its sword. It must see the sword as the main, if not the only, instrument with which to keep its morale high and to retain its moral tension. Toward this end it may, no-it must-invent dangers, and to do this it must adopt the method of provocation-and-revenge.. . . And above all -let us hope for a new war with the Arab countries, so that we may finally get rid of our troubles and acquire our space. (Such a slip of the tongue: Ben Gurion himself said that it would be worth while to pay an Arab a million pounds to start a war.) (26 May 1955, 1021)
On August 14, a U.S. Quaker leader, Elmer Jackson, on a visit to Jerusalem after a meeting in Cairo with Egyptian Foreign Minister Mahmoud Fawzi, told Sharett that Nasser was still interested in normalizing relations with Israel. On October 7, the Egyptian president himself said to New York Times special envoy Kenneth Love: "No Arab says today that we should destroy Israel."(18) But Israel had already made its decisions. (19)
Chapter 9
Disperse the Palestinian Refugees. . .
One important reason for the insistence with which Israel pursued its retaliation policy was the desire of the Zionist ruling establishment to exert permanent pressure on the Arab states to remove the Palestinian refugees of the 1949 war from the proximity of the armistice lines, and to disperse them through the Arab world. This was not due, in the early fifties, to military considerations: as we have seen, and as Dayan's above quotation clearly demonstrates, the Israeli government was more interested in the heightening of border tensions than in their elimination. Furthermore, its lack of concern for the security of the Jewish border population was as cynical as its own promotion of a sensation of danger among the settlers through provocation and false propaganda. Moreover, in those years no organized Palestinian resistance movement existed. It was all too obvious that the low level of guerrilla-type activities permitted by the Arab regimes was intended more to reduce the tensions created inside their countries by the presence of the refugees, and to keep the issue on the agenda in the international arena, than to prepare for a war of liberation in Palestine.(20) But the presence of the Palestinian refugees along the armistice lines in Gaza and the West Bank was not only a constant reminder of the illegitimacy of lsrael's territorial conquests in 1948-49 and of its violation of UN resolutions calling for repatriation, it was also a living, physical landmark along borders which Israel had no intention of accepting as definite limits to its territorial expansion. In other words, as long as masses of Palestinians were still concentrated on Palestinian soil, the Israeli rulers argued, there was both the risk of international pressure in support of their claim to return to their homes, and little likelihood for international permission for Israel to cancel the geopolitical concept of' Palestine entirely, substituting it with that of "Eretz-lsrael."
It must be underlined at this point that Sharett's position on the Palestinian question did not differ, except regarding the use of military methods to disperse them, from that of the "activists." He had totally rejected Count Bernadotte's repeated pleas in 1948 for a return of tile refugees to their homes (Folke Bernadotte To Jerusalem, London, 1951). A year later, he ridiculed the position of the General Zionist Party in favor of a Palestinian independent state in the West Bank and against an agreement with King Abdullah on the division of the West Bank between Israel and Jordan (Divrei, Haknesset, Jerusalem, 1949). In his Diary, there are numerous references to negotiations attempted by his senior aides at the foreign ministry with Arab representatives or exiles aimed at resettling the Palestinians in countries such as Libya, Syria or Iraq. (Among others, Mustafa Abdul Mun'im, Deputy Secretary General of the Arab League is quoted by Sharett on May 23, 1954, as having affirmed that "the refugees should be settled in the neighboring countries, or, if capital is available, in Sinai.") On June 30, 1954, Sharett met with two representatives of a Union of Palestinian Refugees, Aziz Shehadeh from Jaffa and Mahmud Yahia from Tantura, in regard to the payment of compensation. Finally, on May 28, 1955, Sharett's ideas on the question of the Palestinian refugees were unequivocally expressed in his instructions to lsrael's ambassadors in connection with the Security Pact offered to Israel by the U.S., which the foreign minister suspected might include some conditions: "There may be an attempt to reach peace by pressuring us to make concessions on the question of territory and the refugees. I warned [the ambassadors] against any thought of the possibility of returning a few tens of thousands of refugees, even at the price of peace." And this was the "liberal" Zionist leader who claimed to be an expert on Arab affairs because he had lived for two years, during his adolescence, in an Arab village in the West Bank; because he knew Arabic-, because he had lived in Syria during his military service in the Turkish army. On the whole, his attitude toward the Palestinians is well illustrated by a note in his Diary on November 15, 1953. It refers to a report made that day to the cabinet meeting by Colonel Yitzhak Shani, then chief military governor of the Arab minority in Israel. (As is obvious, those whom Sharett calls infiltrators were forcefully expelled Palestinian Arabs trying to return to their home villages or to reestablish contacts with their families who remained under Israeli rule.)
In the last three years [Shani reported] 20,000 infiltrators settled in Israel, in addition to 30,000 who returned immediately after the war.... Only because these 20,000 have not been given permanent documents has the brake been put on the flow of infiltration directed toward settlement. To abolish the military government would mean to open the border areas to undisturbed infiltration and to increasing penetration toward the interior of the country. Even as things are, around 19,000 Arabs in Galilee are in possession of permanent permits to move freely around but only to the West and the South and not toward the North and the East.... it is true that the troublesome problem of the evacuees must be liquidated through a permanent resettlement, but the evacuees firmly refuse to settle on land belonging to refugees who are on the other side of the border.... Even when stone houses are built for them, they refuse to settle in them if they are built on absentee land.... The Arabs who continue to live on their land enjoy advantages, since their production costs are much lower than those of the Jews. In addition they are exempt from spending money and engaging manpower for vigilance, as the infiltrators don't touch their property .... It may be assumed that after this lecture the "General Zionists" demand that the military government be abolished would finally be silenced. ( 1 5 November 1953, 150)
Throughout 1953-54 Sharett periodically referred in his diary to proposals made by Ben Gurion, Dayan, Lavon and others to present Egypt with an ultimatum: either it evacuates all the Palestinian refugees from Gaza and disperses them inside Egypt, or else. The description of the Cabinet discussion in the last week of March 1955 on Ben Gurion's demand for the occupation of Gaza, offers more details:
The Defense Minister's proposal is that Israel declare invalid the armistice agreement with Egypt, and thus resume its "right" to renew the (1948-49) war .... I have condemned the twisted logic in Ben Gurion's reliance on the violation of the armistice agreement by Egypt, in order to justify the declaration on our part that this agreement does not exist any move and thus we are allowed to resume the war.... Let us assume that there are 200,000 Arabs [in the Gaza Strip]. Let us assume that half of them will run or will be made to run to the Hebron Hills. Obviously they will run away without anything and shortly after they establish for themselves some stable environment, they will become again a riotous and homeless mob. It is easy to imagine the outrage and hate and bitterness and the desire for revenge that will animate them.... And we shall still have I 00,000 of them in the Strip, and it is easy to imagine what means we shall resort to in order to repress them and what waves of hatred we shall create again and what kind of headlines we shall receive in the international press. The first round would be: Israel aggressively invades the Gaza Strip. The second: Israel causes again the terrified flight of masses of Arab refugees. (27 March 1955, 865)
In yet another six-hour cabinet meeting Sharett continues his arguments:
What we succeeded in achieving in 1948, cannot be repeated whenever we desire it. Today we must accept our existing frontiers and try to relax the tensions with our neighbors to prepare the ground for peace and strengthen our relations with the Powers.... Finally I proved that the occupation of the Gaza Strip will not resolve any security problem, as the refugees will continue to constitute the same trouble, and even more so, as their hate will be rekindled by the atrocities that we shall cause them to suffer during the occupation. (29 March 1955, 873)
Ben Gurion's speech was full of anger against those who disagree with him and who are in his opinion incapable of seeing the fatal forecast and cannot understand that we can only be delivered by daring action, if it will be performed in time, before the opportunity is missed. . . . The problem of the refugees is indeed a pain in the neck, but nevertheless we shall chase them to Jordan. (ibid., 874-875)
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