Although Israeli and Palestinian leaders are pessimistic about the chances of a breakthrough in the U.S.-mediated proximity talks that begin this week, the Americans hope the process itself will generate a new peacemaking dynamic.
Whether or not the parties make headway, Israeli analysts anticipate a major U.S. peace push this fall.
Over the past few months, U.S. officials have made it clear that the Obama administration sees Israeli-Palestinian peace as a major U.S. interest. Secretary of State Hillary Rodham Clinton made the point in a Washington speech last month: Not only does the lack of peace threaten Israel's future and hold back the legitimate aspirations of the Palestinian people, it "destabilizes the region and beyond," she said.
That position has translated into tough messages to both sides from the Obama administration’s special envoy for Middle East peace, George Mitchell, who got the two sides to agree to launch the indirect talks and is now set to mediate between them.
Mitchell has made clear that he has no intention of merely shuttling between Jerusalem and Ramallah carrying messages, but that he intends to put forward American bridging proposals wherever they might be helpful. He also has indicated to both sides that if the talks falter, the Obama administration will not be slow to blame the party it holds responsible. Indeed, Palestinian officials say Mitchell told them that the United States would take significant diplomatic steps against any side it believed was holding back progress.
The Americans see the proximity talks as a four-month preparatory corridor leading to direct negotiations between Israel and the Palestinians. The strategy seems to be to get the process moving quickly and with as much intensity as possible until next September, when the Israeli moratorium on building in West Bank settlements is due to expire.
Then, Israeli analysts say, President Obama will reconsider his options: If the talks are progressing well, Washington will try to persuade the Israelis to extend the building freeze and the Palestinians to agree to direct negotiations. But if the talks are foundering, Obama may consider putting an American peace plan on the table and calling an international peace conference to pressure the parties to move forward, according to a recent report by David Ignatius in the Washington Post, which quoted senior administration officials.
Israeli media also have reported that Obama told several key European leaders that if the talks stall, he will convene an international peace conference in the fall.
The Israeli aim is first and foremost not to lose the blame game.
The Netanyahu administration in Jerusalem sees in the proximity talks as a means of managing the conflict and keeping the international community at bay as long as it is seen to be giving peacemaking a chance. Israeli officials have little faith in the Palestinians' negotiating intentions and suspect them of planning to use the talks to generate further U.S. pressure on Israel.
Thus, Israeli Prime Minister Benjamin Netanyahu has gone out of his way to convince the Americans of his good faith. Contrary to his previous position -- that core issues like borders, Jerusalem, refugees, security and water only could be discussed in direct talks -- Netanyahu has agreed to have everything on the table in the proximity phase.
More important, he pressed for a vote in his Likud Party last week deferring internal party elections for two years, defeating inveterate party hawks and giving himself new wiggle room to maneuver in the peacemaking arena.
In the proximity talks, Netanyahu wants to discuss security and water issues first. He has ordered his staff to work on an eight-point brief on security prepared by the previous Israeli government under Ehud Olmert. Before Israel makes any commitments on permanent borders, Netanyahu wants to clarify the precise details of Palestinian demilitarization, Israeli rights in Palestinian air space, the functioning of border crossing points and the deployment of Israeli forces along the Palestinians' eastern border with Jordan to prevent arms smuggling.
At one point Netanyahu considered offering the Palestinians an interim mini-state with temporary borders, according to Israeli media, who reported that President Shimon Peres and Defense Minster Ehud Barak, both apparently with Netanayu's approval, tried to persuade Palestinian Authority President Mahmoud Abbas to accept an interim state on about 60 percent of the West Bank.
This would have removed any lingering doubts about Israel's commitment to the two-state solution without entailing a major Israeli withdrawal from the West Bank.
But Abbas, fearful that the temporary measure could become permanent, quickly shot down the idea. A spokesman for Netanyahu told JTA that the interim plan "was out there" and that Abbas had rejected it.
Instead, Netanyahu may be ready to hand over more West Bank land to Palestinian political and security control in a goodwill gesture designed to show Israel's ultimate readiness to roll back its occupation of the West Bank.
Like Israel, the Palestinians' primary goal is not to lose the blame game.
Abbas is convinced that a deal with Netanyahu's hawkish government is not possible. Leading Palestinians for months have been saying that talks with the Netanyahu government would be futile.
In a speech to his Fatah Party in late April, Abbas called on Obama to "impose" a solution that would lead to an independent Palestinian state.
"Mr. President,” he said, “since you believe in this, it is your duty to take steps toward a solution and to impose a solution."
Israeli intelligence has been warning that Abbas' aim is to get the international community, led by the United States, to impose a settlement on Israel. The Palestinian leader also wants Washington in his corner should he decide to go to the United Nations for a binding resolution recognizing a Palestinian state and delineating its borders.
Given the current lack of trust between Israel and the Palestinians, American thinking along similar lines is starting to take shape.
Zbigniew Brzezinski, a former U.S. national security adviser, is proposing that Obama put a new set of peace parameters on the table and urge the parties to negotiate a final peace deal within the U.S.-initiated framework. Should either side refuse, Brzezinski says the United States should get U.N. endorsement of the plan, putting unbearable international pressure on the recalcitrant party.
Brzezinski reportedly outlined this position to Obama in a meeting of former national security advisers convened in late March by Gen. James Jones, the current incumbent.
This is precisely the type of scenario Israeli analysts are predicting for September, especially if the proximity talks fail to make progress: binding American peace parameters serving as new terms of reference for an international peace conference and subsequent Israeli-Palestinian peacemaking.
According to senior Israeli officials, the conference would be held under the auspices of the international Quartet -- the grouping of the United States, European Union, United Nations and Russia -- with the aim of forging a wide international consensus for the creation of a Palestinian state.