Bordering on Conflict: An Evaluation of Developing Interdependence Along the Israel-Jordan Border

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1 Bar Ilan University Bordering on Conflict: An Evaluation of Developing Interdependence Along the Israel-Jordan Border Tamar Arieli Ph.D. Thesis Submitted to the Senate of Bar-Ilan University, Ramat-Gan, Israel, March 2009 This research was carried out under the direction of Professor Gerald Steinberg, Department of Political Science and Professor Yossi Katz, Department of Geography

2 Abstract Cross-border interaction along the Israel-Jordan border is an example of developing post-conflict relations overshadowed by on-going regional conflict. The Israel-Jordan peace treaty is a new chapter in the two countries' long history of shared interests and cooperation. The civilian cooperative initiatives along the shared border challenge the long accepted norm that security considerations dominate the relationship of these two countries. The border is a unique environment for evaluating the potential and limitations of theories of conflict management and transformation through contact, cooperation and spillover. The border region, as the initial interface between countries, constitutes an important element of their relations. Borders in post-conflict settings are unique in their dual capacities; they remain the focus of national policies of control while serving as the basis for a variety of initiatives of locally beneficial interactions. Crossborder exchanges reflect the local and regional potential to respond to the new circumstances of the post-conflict period and to initiate efforts to overcome the impediments due to their peripheral location and the perceived disadvantages of proximity to a border. Cross-border interaction and cooperation of the local populations of border regions are considered to be central factors in the process of developing normalized relations between neighboring countries after a peace treaty is signed and conflict is formally ended. This study presents and evaluates the various social, economic and environmental cross-border interactions along the Israel-Jordan border. It questions the basis for the expectation of normalized relations generated in the border region, from the perspective of the people who live along this shared border. King Hussein envisioned good neighborly relations between Israel and Jordan, with a focus on the Jordan Valley. Much has been written about the potential for Israel- Jordan cooperation and many specific projects have been suggested for the border region. This case study research constitutes the first attempt to provide systematic documentation of most of the functioning interactions in the entire cross-border region and analyzes the factors which affect the prospect of developing a regional perspective of neighborly relations based on interdependence and shared interests.

3 Border theory has evolved from a focus on the negative effects of borders on trade and human contact to an appreciation of the regional importance of border regions as areas of opportunity and cooperation when security ceases to overshadow all other interests. The Israel-Jordan border region presents a model consistent with both traditional and contemporary border theories. Therefore, the lessons of developing cross-border cooperation (CBC) and regional integration in the European and North American contexts are relevant to the understanding of the dynamics of local crossborder exchanges in this border region. In the process of transition from conflict to peace, Israel-Jordan relations face the challenge of advancing from a cold state of negative peace (in Galtung's words, the absence of war) to a warm state of positive peace and normalization. In this regard, the social mechanisms of post-conflict cross-border contact are evaluated on the basis of contact theory, third party involvement and the much debated potential of economic interdependence. The evaluation of functioning local cross-border interactions includes the identification of the various initiators, organizers, funding agencies and actors in order to asses the benefits, challenges and levels of cross-border mutuality. A central finding of this study is the active involvement of non governmental organizations (NGOs) based on locations that are foreign to the border region. These organizations are central to the initiation, funding and organization of many of the cross-border initiatives. The reasons for this involvement and its ramifications are considered in the analysis of the various social, economic and environmental cross-border initiatives. This presentation of the realities of CBC along the entire length of the border region provides a basis for comparison between the various cross-border interactions in terms of the nature of their activity, regularity of function, local involvement and local benefits. In considering the northern section of the border region, most social crossborder interactions are found to be initiated, organized and funded by non-border organizations. They tend to be irregular in terms of the long intervals between activities and the number and identity of participants. Environmental and economic CBC also involve non-border region NGOs, yet this study finds that because they are

4 based on interests and needs of the local border communities and have the potential of tangible benefits, they are characterized by greater regularity and local initiative. 1 The centrality of border-crossing logistics is considered throughout this study. For example, despite the extremely harsh physical and environmental conditions of the region and the limited economic opportunities which could serve as the basis for a local perception of shared interests and needs, the Dead Sea and Central Arava Valley border sections present limited opportunities for cross-border interaction because there is no local border crossing in the region. Another aspect of logistics is the asymmetry between Israel's and Jordan's policies regarding granting entry visas. Many difficulties of developing and sustaining long-term cooperative cross-border interactions are due to the significant organizational effort and prolonged periods of time needed to acquire visas for Jordanians. Israel's visa policy has a detrimental effect on the potential for reciprocal cross-border activities and on the general atmosphere of Israeli-Jordanian interactions. This study brings to light some of the little known cross-border phenomena that reflect the local perception of cross-border interdependence and the potential for CBC. Thus the Barn Owl Project in the Lower Jordan region and the Arava Medfly Eradication Project in the Central Arava are both based on the understanding that solutions of the problem of agricultural pests must address the entire cross-border region. The Aqaba-Eilat municipal CBC is a unique example of the development of patterns of institutionalized cooperation between the local governments of neighboring cities. These case studies are analyzed to determine their development over time and their significance both to the border region and to the general framework of relations between Israel and Jordan. The limiting factors of cross-border interaction and cooperation were found to be the ongoing dominance of national, political and security discourses. The powerful interests and institutions of both countries, each with its own rationale and mechanisms, closely monitor all cross-border contact; Israel through its visa policy and Jordan through anti-normalization campaigns and controlled exposure of interactions. This is a central reason for the necessary and significant involvement of third parties in coordinating cross-border interactions. Therefore, despite the physical 1 Chapter 6 will expand on the many CBC programs of NGOs such as ACPD, CIRC, ECF and FoEME.

5 proximity of neighboring communities, cross-border interaction is indirect in that it is controlled by the national institutions of both countries and mediated through foreign agents. This is a central reason for the fact that even in the fifteenth year of their open diplomatic relationship, cross-border interaction is still not perceived as a natural and legitimate aspect of border life. Further research is needed to asses the degree to which the factors found to be salient in promoting or limiting CBC in the Israel-Jordan case study are relevant to other post-conflict border regions.