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The London School of Economics and Political Science Israeli Foreign The London School of Economics and Political Science Israeli Foreign Policy Towards Iran 1948-1979: Beyond The Realist Account Efrat Shaoulian-Sopher A thesis submitted to the Department of International Relations of the London School of Economics and Political Science for the degree of Doctor of Philosophy London, October 2017 DECLARATION I certify that the thesis I have presented for examination for the PhD degree of the London School of Economics and Political Science is solely my own work. This thesis was copy-edited for conventions of language, spelling and grammar by Dr. Daniel Strieff and Sandra Beck. The copyright of this thesis rests with the author. Quotation from it is permitted, provided that full acknowledgement is made. This thesis may not be reproduced without the prior written consent of the author. I warrant that this authorisation does not, to the best of my belief, infringe the rights of any third party. The final word count of this thesis, including titles, footnotes and in-text citations, is 99,122 words. 2 ABSTRACT Israeli foreign policy towards Iran in the period 1948-1979 has been generally explained through the Realist perspective, claiming that Israeli relations with Iran were established and developed due to converging strategic interests and common threats. This thesis argues that the existing literature does not fully appreciate the role that individuals, especially with their perceptions and misperceptions and human agency played in the formation and implementation of Israeli foreign policy. By not fully appreciating the role of human agency, the existing literature on Israeli relations with Iran has not fully explored the methods that made Israel’s foreign policy with Iran a success. For instance, the existing accounts do not examine how the actions of specific Israeli diplomats in Tehran such as Ambassador Meir Ezri prevented attempts from groups in Iran such as the Iranian Foreign Ministry and certain religious clerics to stop Israeli-Iranian relations. For three decades, the relationship between Israel and Iran, though discreet and often kept secret, flourished within the context of the Cold War and the rise of Pan Arabism. Many covert joint operations yielded widespread collaboration in the areas of trade, civilian technology, oil, agriculture, and extensive military intelligence collaboration on areas such as Yemen, Iraq and the Kurds. That changed with a shift in Israeli personnel in 1973, and ended completely after the 1979 Islamic Revolution. If Israeli-Iranian relations did solely stem from converging strategic interests, relations would have been more likely to survive the 1979 Revolution. Rather, the Israelis’ change in personnel in Tehran, their relationships with the Iranians, and their perceptions of world events greatly influenced the 1973 and 1979 shifts. This thesis concludes that any analysis of Israeli foreign policy formation and implementation towards Iran must include the multidimensional role of decision-makers, diplomats, and other foreign policy actors in order to complete the analysis presented by the existing Realist-leaning accounts. The thesis bases its argument on extensive International Relations-based examination of Israeli diplomatic history. Analysis of the role of prime ministers and diplomats such as David Ben Gurion, Tzvi Doriel and Meir Ezri; including their perceptions and misperceptions and human agency—forges a new understanding of Israeli foreign policy towards Iran from 1948 to 1979. Through the use of personal interviews, memoirs in Hebrew, English and Farsi, recently de-classified documents from the Israel State Archives, and unseen documents from private family collections, this thesis presents an argument that addresses the gaps in the existing literature. 3 4 ACKNOWLEDGMENTS I would like to dedicate this thesis to and in honour of my grandfather, Meir Ezri, in gratitude for his inspiration and direction and without whom none of this project would have been possible. Saba, I am grateful that you saw my thesis evolve, and that your light and guidance has enabled me to follow it through to completion. I would like to honour the late Professor Fred Halliday for his unrelenting confidence in my PhD and for being a truly generous supervisor, teacher and mentor, and for teaching me that life continues at the same time as a PhD. My thanks also to Professor Michael G. Fry for encouraging me to pursue my PhD at the London School of Economics and for teaching me that all academic endeavours must involve ‘fire in the belly’. My very sincere thanks to my supervisors Dr. Katerina Dalacoura and Dr. Amnon Aran for agreeing to take on my thesis and for your critical eyes. I am grateful for your on going concern, thoughts and suggestions. I would like to thank my interviewees who wished to remain anonymous, to The Lord Alliance of Manchester, Yossi Alpher, Nachik Navot and Hamid Sabi for bringing my sources to life and for your generosity. My thanks also to Helena Vilensky at the Israel State Archives for your attentive assistance and for making my visits to the Archives such a pleasure. I would like to thank my academic friends and colleagues Dr. Glen Segell, Dr. Elliot Hentov, Dr. Bea Lewkowicz, Dr. Magdalena C. Delgado, Dr. Neal Suleimanova, Dr. Alan Mendoza, Dr. Melanie Garson and Dr. Daniel Strieff for your invaluable support and feedback and for so generously guiding me through my PhD and for your very watchful eyes and sympathetic ears. For my very dear friends Viola Raikhel-Bolot, Romy Jacobsen, Ingrid Coltart and Sandra Beck. Your love, strength and support as well as sense of humour have made this the most enriching journey, and I am deeply grateful for your unrelenting support and friendship. To my formidable extended family who has supported me through thick and thin. For my inspirational Grandmother, Miriam Ezri, for making your dedication and sense of duty during your mission to Iran an adventure in diplomacy, love and grace. For my parents Avigail and Morris Shaoulian for your unending love and for teaching me persistence and the ultimate value of education. To my sister Yael Shaoulian for the intellectual debate and amusing distractions. My deepest thanks to Avikhail Ezri for your love and laughs and for helping me navigate the Israel State Archives with a smile, and to Yoram Ezri for your continued support, encouragement and for being a wonderful observer at my lectures. To my husband Daniel Sopher for your love and support in every way imaginable and above all to my darling sons Judah and Ariel for allowing me to continue working through all school times and vacations. I hope that I have set a good example for a consistent work ethic with passion and persistence. You both in turn have been my compass and source of greatest joy. In memory of Meir Ezri, Iran Shaoulian and Nejat Shaoulian 5 ABSTRACT ..................................................................................................................... 3 ACKNOWLEDGMENTS .............................................................................................. 5 CHAPTER 1: INTRODUCTION ................................................................................ 12 1.1 Introduction and Rationale ........................................................................................... 12 1.2 Research Question, Argument and Contribution .................................................. 18 1.3 Survey of the Existing Literature and its Themes ................................................. 20 1.4 Methodology ...................................................................................................................... 31 1.5 Israeli Foreign Policy Objectives and the International Context ..................... 33 1.5.1 Israeli Foreign Policy Assumptions and Objectives .......................................................... 33 1.6 The Israeli Decision-Making Structure ..................................................................... 41 1.7 Structure of the Thesis ................................................................................................... 46 CHAPTER 2: ................................................................................................................. 48 THEORETICAL PERSPECTIVES ON ISRAELI FOREIGN POLICY TOWARDS IRAN: KEY DEFINITIONS AND CONCEPTS FOR REALISM AND THE FOREIGN POLICY ANALYSIS APPROACH ............................................... 48 2.1 Introduction ....................................................................................................................... 48 2.2 Definition of the National Interest ............................................................................. 51 2.3 Realism Distilled ............................................................................................................... 52 2.4 The Inadequacy of Neoclassical Realism and Constructivism .......................... 57 2.4.1 The Inadequacy of Neoclassical Realism .............................................................................. 57 2.4.2 The Inadequacy of Constructivism .......................................................................................... 60 2.5 The Individual in Realist Policy ................................................................................... 64 2.6 What The Realist Account Has Not Explained ........................................................ 69 2.7 Towards a New Analysis of Israeli-Iranian Relations .......................................... 73 2.7.1 Synthesising
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