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;{ ...:­ ~ ~­ DOES THE INFLUENCE ? ~~. 'l-' !( THE CASE OF THE RECONSTITUTED JEWISH AGENCY

~, I ~; CHARLES S. LIEBMAN i ~­ i':­ ~." THE question'of what role and how much method is to explore the use or lack of ;>•. ~. influence diaspora Jewry should or use by diaspora Jewry of instruments and ;.: should not have in shaping Israel's public institutions which on the surface, at least, II t-. provide the opportunity for the exercise ~'. policy has received increasing attention in ~,­ both Israeli and diaspora circles in the past of influence. Such an institution, par ex­ ~,.~ few years. In point of fact, Israel has consi­ cellence, is the reconstituted Jewish Agency. dered diaspora Jewries' needs in formulat­ The Founding Assembly of the ~econsti. l ing its public policies, but they have been tuted Jewish 'Agency took place in June f' diaspora "needs" as defined by Israel. 1971. The agreement on the reconstitution If,,· .' was approved in February 1970 by the ~" World Jewry has exercised very little in­ major participants-the Zionist General .. t-' fluence on Israeli policy in the sense that t: it has pressured Israel into adopting poli­ Council on behalf of the World Zionist cies which Israel would not have adopted Organizations; the in the absence of diaspora pressure. Inc. (UIA), the recipient organization with­ There are various methods for attempting in the United States of funds raised for Israel through the agency of the United ..) to understand this phenomenon. One such ~ Jewish Appeal; and the , the :~ major fund raising agency for Israel in Professor Charles Liebman heads the Depart­ countries outside the United States. In ment of Political Studies at Bar-I1an University, other words, the Jewish Agency repre­ Ramat Gan, and is the author of studies on s~nts the World Zionist Organization and Jewish life in America. the major Jewish donors to Israel. The This is a revised version of part of a 'manu­ script, Pressure Without Sanctions: The Influence good will and cooperation of these don­

'i-, of World Jewry In Shaping Israefs Public Poli­ ors is vital to the State of Israel. But ...­ cy. The chapter, published here for the first to understand what the reconstituted JA time, was prepared prior to the Yom Kippur ".: is, what it can do with respect to Israeli ~~ War. policy, atJ,d equally important what it does The author wishes to thank his colleagues of j the Center for Jewish Community Studies for not and cannot do, we must briefly review ,-1 . ,helpful comments and suggestions. the background of its creation.

I~> (.!. ,~.... ",iJ.' ~. ki\· t1-.:"'~. _ . DOES THE DIASPORA INFLUENCE ISRAEL? 19

Nahum Goldmann's efforts to expand their local community could offer. Many As we noted, virtually and broaden the JA to include non-Zionist federation leaders were acquiring a new community in the United S as well as Zionist bodies met with limited self-image of themselves as people respon­ form of a federation or success in the 1950's. Goldmann's efforts sible for initiating, planning and coordinat­ fund. These funds run c were directed primarily at enlisting the ing programs at the local level rather than paigns for local, national at major American Jewish organizations. AI· simply funding ongoing programs, and they Jewish needs. In the last fe' though he failed to secure their participa­ transfered this new self-image to their three quarters of this mone tion at the political level, changes took Israel activities. Finally, an increased con­ international Jewish needs, place in the 1960's which,increased Ameri­ fidence in their own Americanism permit­ has been transferred from t - can Jewish participation at the technical ted federation leaders to allow themselves tion and welfare fund ca level. First of all, CJFWF leaders at the the luxury of also being involved in the United Jewish Appeal. OnI: national and local levels were seeking, on affairs of another country3. City did the UJA run an inc at least a modest scale, forms of coopera­ A second reason for the increased par­ but after the Yom KippUl tion with Israel that went beyond just ticipation of American fund raising leaders of Greater New York and "sending money". They felt they had in WZO-JA activity at the technical level of Jewish Philanthropies of knowledge and experience to offer Israel came as a consequence of American tax cided to merge into a single and they sought some framework to ex­ laws. The Internal Revenue Service of the in New York and press their increased sense of partnership United States Department of Treasury re­ major beneficiaries of UJA with Israel2• quires that funds raised in the United States Joint Distribution Committl There were a variety of reasons for this for expenditure outside the U.S. must, in The latter receives well ove change of attitude. Some philanthropic order to qualify for tax exemption, be ex­ the money collected for ove leaders who were once indifferent or even pended under the supervision of a non­ der a rather complicated fo antagonistic to had turned into governmental agency which is controlled not concern us here. enthusiastic sympathizers of Israel. Others by the American fund raisers. The organi­ Thus, the bulk of the t were searching for new outlets and broader zation established in 1960 to meet the re­ by Jewish federation and horizons for Jewish activity and were un· cently tightened requirements of the Trea­ goes to the UIA. The UIA satisfied with the focus of activity which sury Department concerning American tax fers its funds to the Jewisl exempt organizations operating overseas, ever, in accordance with lJ was the organization today known as the Service requirements, the U 4. ly turn the money over to 1 The CJFWF (Council of Jewish Federation United Israel Appeal Inc. (UIA) and Welfare Funds) is the roof organization of latter to do with it as it all the local Jewish Community Federation and all, the IRS requires thaI Welfare Funds in the U.S. Since it is the local fund raising organization Jewish Federations and Welfare Funds (different 3 This last point was suggested by Zelig Chinitz, the dispersal of funds. For communities use somewhat different names), who present UIA representative in Israel; interview, JA (i.e. the WZO-JA unti conduct the philanthropic campaigns for Israel September, 1972. as well as for local and other national needs, 4 The organization actually established in 1960 tion of that organization iI the leaders of the CJFWF, in fact, are the lead­ was the Jewish Agency for Israel Inc., an or­ signated as the agent of ars of American Jewish philanthropy. ganization distinct from the Jewish. Agency­ this, however, was not S1l 2 Interview with Philip Bernstein, Executive American Section, which was the American Sec­ not all of the old WZo-J vice-president of the CJFWF, March, 1973. See tion of the Jewish Agency executive. In 1966 were tax exempt. For exam .' also Zelig Chinitz, "Reconstitution of the Jewish the UIA was formed by a merger of the Jewish Agency", Jewish Frontier, 37 (December, 1970) Agency for Israel Inc. and the old Keren Haye­ activity within the United p.7. sod United Israel Appeal. encouraging immigration c 19 20 FORUM

:>mmunity could offer. Many As we noted, virtually every Jewish tion of Zionist youth groups, was certainly aders were acquiring a new community in the United States has some not tax exempt. Consequently the UIA themselves as people respon­ form of a federation or Jewish welfare designated the specific programs of the lting, planning and coordinat­ fund. These funds run combined cam­ WZO-JA which it was willing to fund and at the local level rather than paigns for local, national and international it sent a representative to Israel to ensure ;g ongoing programs, and they Jewish needs. In the last few years roughly that funds were being spent in accordance is new self-image to their three quarters of this money has gone for with its mandate. ~. Finally, an increased con­ international Jewish needs, i.e. the money Thus, as early as 1960. American Jewish ;if own Americanism permit. has been transferred from the local federa­ fund raising leaders had a large voice in I leaders to allow themselves tion and welfare fund campaign to the the activities of the WZO·JA. This state­ : also being involved in the United Jewish Appeal. Only in New York ment. however. must be qualified. First of ther country3. City did the UJA run an independent drive, all. Zionists were also represented on the -eason for the increased par­ but after the Yom Kippur war the UJA U1A5. Secondly. the UIA did not initiate ~merican fund raising leaders of Greater New York and the Federation programs. It merely designated those pro­ lctivity at the technical level of Jewish Philanthropies of New York de­ grams in the WZO-JA budget which it .nsequence of American tax cided to merge into a single agency serving was willing to support. For example. the ~rnal Revenue Service of the Jews in New York and overseas. The WZO-JA activities in the United States :,Department of Treasury re­ major beneficiaries of UJA funds are the which were not tax exempt were financed Ids raised in the United States Joint Distribution Committee and the UIA. by income from countries outside the U.S. ~e outside the U.S. must, in The latter receives well over two thirds of Thus. the fact that the UIA designated ~ for tax exemption, be ex­ the money collected for overseas needs un­ those programs it wanted to support had -, the supervision of a non­ der a rather complicated formula that need very little impact on WZO-JA programs. agency which is controlled not concern us here. It is possible that without UIA supervision ?RD fund raisers. The organi­ Thus. the bulk of the money collected more money might have gone to other phi­ bed in 1960 to meet the re­ by Jewish federation and welfare funds lanthropic enterprises in Israel. but the total 0<1 requirements of the Trea­ goes to the UIA. The UIA, in turn, trans· impact was negligible6• What UIA involve­ rot concerning.. American tax fers its funds to the Jewish Agency. How­ ment did do. however. was accustom Ame­ . ever, in accordance with Internal Revenue IZabons operatmg overseas, rican fund raising leaders to a deeper sense ~tion today known as the Service requirements, the UIA cannot simp­ Appeal Inc. (UIA) 4. ly turn the money over to the JA for the

latter to do with it as it wishes. First of 5 The UIA is controlled by a 210 member board -j,', ~ ~, all, the IRS requires that the American of trustees and a 27 member board of directors. ' ..~.> If fund raising organization actually control One hundred trustees are designated by Ameri­ ;~ suggested by Zelig Chinitz, the dispersal of funds. For that reason, the can Zionist Organizations, one hundred by local ~ntative in Israel; interview, community leaders (the CJFWF) and ten are JA (i.e. the WZO-JA until the reconstitu­ [' elected at large. The trustees elect 21 of the 27 • ,actually established in 1960 tion of that organization in 1970) was de­ member board of directors and the remainder flFncy for Israel Inc., an or­ signated as the agent of the UIA. Even are designated by the American section of the ',:,' fr?m the Jewish ~gency­ this, however. was not sufficient because JA. Thus, theoretically the Zionists have a ,

;f eliminating the JA altoge­ predecessor Ben-Gurion, was a staunch tionships with them. Meanwhile, since the friend of the WZO-JA, a contrast to which WZO-JA was able to avert a decision to 1960's there were increasing he alludes in his statement. transfer its functions to the Government, ~rnment dissatisfaction with Paradoxically, the dramatic increase in the outpouring of funds on behalf of Israel Eor example, at the January the financial contribution of diaspora Jew­ by diaspof'l Jewry meant that the WZO­ )f the Zionist General Coun­ ry surrounding the Six Day War of 1967 JA controHed a far more substantial budget lister Levi Eshkol addressed jeopardized rather than buttressed the than it had prior to the Six Day War. Its failure of the Zionist move­ WZO-JA autonomy9. Ernest Stock, the responsibility for programs within Israel se immigration from affluent VIA representative in Israel for a number increased12 and the importance of the or­ expand and intensify Zionist of years, pointed out that the first reaction ganization increased concomitantly. In ad­ Jewish cultural activities in of the Israeli Government was to seek a dition, there was a sharp rise in immigra­ :ie said: deeper involvement in the policies and tion to Israel which meant additional bur­ operations of the organization whose in­ dens in the area of aliyah for which the ~ow, I have never been in come now constituted "a not inconsidera­ WZO-JA had always assumed responsibi­ bstract debate on the mean­ ble portion of the total resources available lity. ism and the Zionist Organi­ to the Israeli economy"10. The Govern­ The major architect of the reconstituted 1t to exist. I have attached ment's decision in 1968 to establish the Jewish Agency was Louis Pincus, Moshe ?r importance to the imple­ Ministry of Immigrant Absorption was re­ Sharett's successor as chairman of the Jew­ Jits ideas. I would have been garded by some, according to Stock, as ish Agency executive from Sharett's death dIy in favour of giving it the opening wedge of a more thorough­ in 1965 until his own death in 1973. Pincus' ~ in our relations with the going take over of JA responsibilities. counterpart in the U.S. was , ~le. But rights imply duties The immediate threat to the WZO-JA leader of both the VIA and the CJFWF 1here is a Charter between autonomy was met with the assistance of in the crucial period during which consul­ ~tes both parties to action. CJFWF and VIA leader Max Fisher. Fisher tations took place and an agreement over e Government of Israel has told the Government that the VJA could the new structure was reached. IICOntinuing to meet its obli­ not continue to function unless the auto­ In retrospect, the decision to expand the he Movement-if not more. nomy of the WZO-JA was maintainedll• JA through fund raising rather than other ~no point in simply drawing These threats to the WZO-JA probably Jewish organizations seems natural enough. -the Charter. If it is not helped secure approval of a proposal at the First of all, the VIA, as we saw, already ~s, it loses all sense and 27th in 1968 au­ had a relationship to the JA and sought a Government must re-exa­ e thorizing the executive to open negotiations closer one; other organizations had rejected 'time to time its ties and with fund raising and other Jewish organiza­ previous overtures. Secondly, the VIA I towards the Zionist Move­ tions with the purpose of formalizing rela­ wanted to be the sole American body re­ ~:basis of deeds-or the lack i: . presented on the JA. According to Philip -(\ Bernstein, CJFWF executive vice president, 9 Ernest Stock, "The Reconstitution of the Jew­ ilJnificant statement coming ish Agency: A Political Analysis," Morris Fine "We agreed that the VIA should be the !kol who, compared to his and Milton Himmelfarb (eds.), The American sole instrument (in the U.S.) since it was "l( "",~ Jewish Year Book 1972 (Philadelphia: Jewish the sole fund raising group and the JA " Publication Society, 1972), p. 187. ;tZionist General Council. Ja­ 10 1bid. ~Jerusalem: Organization De­ 11 Letter from Ernest Stock to the author, April 12 Primarily in the fields of welfare, health, iZionist Executive, 1967), pp. 27, 1972. Stock had personal howledge of the' higher education, and the housing of immigrants. ~< ~~ events he describes. Interview with Moshe Rivlin, July 1971. ~

, f

~ ." "' DOES THE DIASPORA INFLUENCE ISRAEL? 23 24 the sole expenditure group"13. Thirdly, it outside Israel-activity which included pre­ migration and absorption, was becoming increasingly evident in the paring Jewish youth for immigration to research, youth care and tr; late 1960's that leadership and even au­ Israel or Zionist information and propo­ tion in agricultural settleme thority within the American Jewish com­ ganda. In addition to tax problems which , grant housing. The WZO, I: munity was increasingly concentrated in such activities created, leaders of American ) organization was to retain re the local federation and welfare agencies­ Jewish philanthropy may have also had organization and public infol i.e. in the constituent councils of the ideological objections14, although these ob­ raging immigration from am CJFWF rather than in any formal Jewish jections declined after the Six Day War. education in the diaspora, : organization or group of organizations. But, for tax reasons alone, any structure tural activities, and the ac Certainly, the bulk of very wealthy Ameri­ that involved non-Zionist fund raisers in . can Jews from whom most of the contribu­ closer ties to Israel would have had to be The reconstituted JA has' tions to Jewish philanthropy came had one in which Zionist activity in the dias­ bodies. There is an Assemb: greater commitment to the CJFWF or local pora was distinguished from activity within bers, half of whom are de~ federations and welfare funds than to any Israel itself. Thus, when Pincus began his WZO, 30 percent by the Ul other set of agencies or organizations. The discussions with the UIA it was clear that cent by the Keren Hayesc UIA provided an address for the vast ma­ the JA would have to be detached from agencies outside the U.S. jority of those wealthy American Jews who the WZOI5. Under the terms of the agree­ bly meets once a year to were involved in Jewish philanthropy. ment, the reconstituted JA undertook res­ ral guide lines for the 11 This decision, however, as natural as it ponsibility for immigration to and absorp­ budget, and elect the Boarc seems in retrospect, has a number of very tion of immigrants in Israel, social welfare Representation on the Boar important consequences. It means first of and health services in connection with im­ (it now has 42 members: all, that a very special kind of Jew repre­ in the same proportion as. sents the diaspora within the JA structure. It meets several times a yea He is either a very wealthy Jew or close to affairs of the JA and elect t 14 In the early 1950's, Edward Warburg, then the sources of great wealth. He is also, for Executive. The Executive head of the UJA told , then reasons we shall discuss below, not politic­ Chairman of the Jewish Agency Executive in give representation to thf ally oriented in either a partisan or even New York, that he would resign if UJA funds operating departments whc policy making sense of the term. were used to encourage immigration of Ameri­ presentatives and to the fu. There was, however, one obstacle to se­ can youth to Israel. Goldmann promised that cies in more or less the s curing a greater involvement of the UIA such activities would be funded from WZO-JA as the other two governin income from non-American sources. See Ameri­ in an expanded Jewish Agency. The bulk can Jewish Committee, Library of Jewish In­ are 11 members on the Cll of WZO-JA money from all sources was formation, The Jewish Agency for , six of whom are WZO I expended on activity in Israel-primarily Ch. II (New York: American Jewish Com­ from fund raising groups immigration and absorption of immigrants, mittee, mimeo, May, 1957), p. 23. are from the U.S. and c 15 Interview with Philip Bernstein, March, 1973. agricultural settlement and to an increasing Britain. In addition, there The importance of tax considerations in the extent (after 1967) education (including division of responsibility between the WZO and ciate members who may higher education) and social welfare. How­ the JA is evident in the official Agreement for but have no right to vote. ever, rougWy ten percent of the WZO-JA the Reconstitution of the Jewish Agency for ciate members are profess budget was expended on Zionist activity Israel., Article 1, section D stipulates that "the fund raising organizations j functions and tasks and programs administered ever, in the day to day'c by the Agency or to which it' may contribute ~ funds, shall 'be only such as may be carried on JA it is the Israelis who 13 Interview with Philip Bernstein, March, 1973. by tax-exempt organizations." the departments in Israel, : 23 24 FORUM

-activity which included pre- migration and absorption. education and pora Jews from the fund raising organiza­ youth for immigration to research, youth care and training. absorp­ tions, who determine policy execution. tist information and propo­ tion in agricultural settlements and immi~ There are three areas of potential in­ ition to tax problems which grant housing. The WZO. now a separate fluence of the reconstituted J.A. First, the created. leaders of American organization was to retain responsibility for JA has the authority, the legitimate power, :hropy may have also had organization and public information, encou­ to determine policies in that area of res­ 14 ections • although these ob­ raging immigration from affluent countries, ponsibility assigned to it under the agree­ ed after the Six Day War. education in the diaspora. youth and cul­ ment for reconstitution of the Jewish Agen­ 'easons alone. any structure tural activities, and the activities of the cy to which we have already referred. Se­ Jlon-Zionist fund raisers in Jewish National Fund. condly, .by virtue of its authority and res­ srael would have had to be The reconstituted JA has three governing ponsibility in such fields as immigrant ab­ Zionist activity in the dias­ bodies. There is an Assembly of 296 mem­ sorption, housing, social welfare, educa­ 19uished from activity within bers. half of whom are designated by the tion, agricultural settlement. etc.• the JA can \ hus. when Pincus began his WZO. 30 percent by the VIA, and 20 per­ influence social and economic policy in h the VIA it was clear that cent by the Keren Hayesod fund raising Israel since the exercise of its specific dele­ have to be detached from agencies outside the U.S. The Assem­ gation of authority directly affects other :lder the terms of the agree­ bly meets once a year to provide gene­ policies as well. Finally, by virtue of the nstituted JA undertook res­ ral guide lines for the JA, approve the importance of the JA to Israel. its leaders immigration to and absorp­ budget. and elect the Board of Governors. have potential influence even over those ants in Israel. social welfare Representation on the Board of Governors policies for which they have no responsi­ rices in connection with im­ (it now has 42 members) is distributed bility whatsoever. The governing bodies of in the same proportion as the Assembly. the JA, or even its individual leaders such It meets several times a year to manage the as Max Fisher would surely find an atten­ affairs of the JA and elect the all important tive ear in Government circles on any issue 1950's, Edward Warburg, then Executive. The Executive is structured to upon which they might choose to express ~ told Nahum Goldmann, then c Jewish Agency Executive in give representation to the heads of the themselves. he would resign if VJA funds operating departments who are WZO re­ How much influence does the JA actual­ courage immigration of Ameri­ presentatives and to the fund raising agen­ ly exercise? We will organize our discus­ rael. Goldmann promised that cies in more or less the same proportion sion around the three areas of potential ould be funded from WZO-JA l-American sources. See Ameri­ as the other two governing bodies. There influence. mrittee, Library of Jewish In­ are 11 members on the current Executive. Has the JA sought to influence policy Jewish Agency for Palestine, six of whom are WZO people and five outside its area of responsibility? Has it, 'ork: American Jewish Com­ from fund raising groups of whom four for example. expressed itself or sought to ~ay, 1957), p. 23. are from the U.S. and one from Great influence the Government in areas such as I Philip Bernstein, March, 1973. of tax considerations in the Britain. In addition, there are three asso­ foreign policy. or religious policy? The nsibility between the WZO and ciate members who may attend meetings answer is an unqualified no. There is no t in the official Agreement for but have no right to vote. All three asso­ evidence that even in closed circles JA In . of the Jewish Agency for ciate members are professional leaders of leaders have in any manner shape or form ~ section D stipulates that "the fund raising organizations in the U.S. How­ sought to utilize their power to influence SIts and programs administered .\ ~r to which it may contribute ever, in the day to day operation of the Israeli public policy. Of course. no one can \:~ Cly such as may be carried on JA it is the Israelis who are the heads of say with any· assurance that such efforts ~ganizations." the departments in Israel. rather than dias­ may not be made in the future. but given DOES THE DIASPORA INFLUENCE ISRAm.? 2S

the composition of the JA one would not tween young couples. individuals with these recommendations wet" anticipate such efforts. There is. for exam­ large families. particularly slum dwell­ repeated. no concrete steps ple. no comparison in the kinds of c~iti­ ers. and of course the new immi­ dertaken to implement them cisms of Israel that emanate from the World grants16. One set of recommenda Jewish Congress and the kinds of discus­ a more technical nature, But. he noted. the Committee "felt that it sions one hears at a meeting of the JA commendations concerning was not sufficiently knowledgeable to make Assembly. Indeed. delegates at the Assemb­ ing or construction. It is : ~y specific recommendations. at this time, ly meeting in 1973 did. from time to time recommendations which ha~ WIth respect to priorities17. He went on to raise questions or issues outside the specifi~ mented in one form or a! praise the Ministry of Housing for being sp~ere of JA responsibility; but they were (Technological Advisory • "seriously concerned about all of these qUIckly called to order by the session chair­ Housing) was established a problems, and it intends to do its utmost man and other delegates. mittee of the JA Housing • to relieve the situation in all these areas"18. The second area of potential JA influence representatives of the Minisl The Committee recommended the estab­ is over policies which the JA might in­ Its chairman was Jack Weil lishment of a mortgage loan association to fluence by virtue of its decisions in policy brought a number of build lower interest rates on housing loans and areas over which it does have direct res­ Israel for short periods .. the encouragement of rental housing. The ~nsibility .. For example. the JA is respon­ Israeli builders in developin~ Committee acknowledged the offer of one SIble for Immigrant housing. But immi­ introducing new materials. of its. members to advice the Ministry of grants are not housed in distinctive struc­ planning process and traini.: HouslO~ on the provision of mobile type t~res or isolated areas. Consequently deci­ nagement personnel-all am homes In Israel and also held discussions SIOns .about location. price. size. quality. ing the time required to bu: with regard to the construction of modular quantity. or methods of construction of im­ down the cost and to provi. type apartment buildings. The chairman migrant. housing affect the entire housing ing"19. TACH also made; expressed his hope that the Ministry of market In Israel. If the JA fully exercised commendations to the Minis Housing would take advantage of the know­ its authority to make basic policy decisions most of which were accepte ledge which prominent builders who were with respect to immigrant housing. it would suggestions were either of ~ represented on the Housing Committee exercise an enormous influence on Israel's ture (the reduction of dut were able to offer to Israel. Finally, the housing policy. . imported building products Committee recommended the establishment The individual most active in JA hous­ tion of long term design-bl of a standing Housing Committee to make ing matters was the prominent American or recommended measures specific recommendations on housing in builder and Jewish philanthropist. Jack term land use and availal Israel. w.eiler. Weiler chaired the Housing Com­ where the actual planning In summary, the Committee eschewed mIttee at the first Assembly meetings in ~y rol~ in formulating far-reaching hous­ 1971. He observed that: 109 pollcy. It did make recommendations 19 Louis Pincus, The Jewish A One of the items that was put before with respect to financing-recommendations A Report to the Members of th the Committee again and again was the which, if carried out, might well have had Assembly (Jerusalem: Jewish p. 37, question of priorities in housing. as be­ impo~~ consequences on the availability 20 The Technical Advisory Can: of credIt In the Israeli money market. While ing of the Ministry of Housing . Agency Committee on HousiD 16 Proceed'mgs of the Founding Assembly of Report," included in the binder the, Reconstituted Jewish Agency (Jerusalem: 17 Ibid. ly. prepared by the JA for th. JeWish Agency. 1971). p. 81. 18 Ibid. -Assembly meetings, p. 4. i-·~ ;o,J,

:. ~ ... :~ ..~ FORUM ::-~ 2S 26 ~f P couples, individuals with these recommendations were subsequently the hands of the Govemment. Weiler, him­ .., particularly slum dwell­ repeated, no concrete steps have been un­ self, engaged in a pilot construction project !jf course the new immi­ dertaken to implement them. to demonstrate "how building processes in One set of recommendations were of Israel can be expedited and the costs con­ a more technical nature, involving re­ trolled by proper planning, effective ma­ "'11'.­,.the Committee "felt that it .... tly knowledgeable to make commendations concerning types of hous­ nagement and the use of new materials \'. mmendations, at this time, ing or construction. It is these kinds of (and to) serve as a demonstration of pre· recommendations which have been imple­ construction difficulties and delays"21. ~.'.; Ipriorities11. He went on to mented in one form or another. TACH !JUstry of Housing for being In terms of the publicity which the JA -~.•~ med about all of these (Technological Advisory Committee on accords its Housing Committee, its achie· Housing) was established as a joint com­ vements are those in which the JA takes _'it i~ten~s to do its utmost mittee of the JA Housing Committee and great pride. Without minimizing in any - ation ill all these areas"18. lteerecommended the estab­ representatives of the Ministry of Housing. way the important contribution of the JA Its chairman was Jack Weiler. TACH has Housing Committee, its direct influence has ~.yrtgage loan association to \ ffates on housing loans and brought a number of building experts to been limited to helping effect technical im­" ldent of rental housing. The Israel for short periods "to work with provements in housing construction and Israeli builders in developing new methods, ~wledged the offer of one planning. These improvements may have ." fi to advice the Ministry of introducing new materials, improving the long term consequences 'for Israel. There planning process and training middle ma­ have been those, after all, who argued that ~.'provision of mobile type it and also held discussions nagement personnel-all aimed at shorten­ the introduction of the stirrup into the west ihe construction of modular ing the time required to build or to bring had the profoundest impact on the develop­ it' buildings. The chairman down the cost and to provide better hous· ment of modern society. But, like the ~hope that the Ministry of ing"19. TACH also made a series of re­ stirrup, any basic policy changes that stem bake advantage of the know­ commendations to the Ministry of Housing, from the Housing Committee's efforts are (Ominent builders who were most of which were accepted 20, But these the result of chance rather than intent. suggestions were either of a technical na­ The third area of potential JA influence .~' the Housing Committee iter to Israel. Finally, the ture (the reduction of duties for certain has to do with programs for which the JA imported building products or the initia­ has direct funding responsibility. One ex­ ended the establishment sing Committee to make tion of long term design-build contracts), ample is higher education in Israel. ;1 . ··...··....~- . i, or recommended measures such as long In the 1972-1973 fiscal year the JA pro­ 'endations on housing in Jj -~ -, term land use and availability planning vided 61 percent of the operating budgets .... where the actual planning will remain in of institutions of higher learning in Israel, F 'i ~~the Committee eschewed ;1 and the Government provided an additional ~.uJating far-reaching hous­ make recommendations nine percent. In view of the JA's contri­ 19 Louis Pincus, The Jewish Agency in Action: butions to Israeli universities, it did not icing-recommendations A Report to the Members of the Jewish Agency ;'OUt, might well have had Assembly (Jerusalem: Jewish Agency, 1973), appear unreasonable that they establish , :ences on the availability p. 37. some criteria by which universities were to 20 The Technical Advisory Committee on Hous­ . !Doney market. While ing of the Ministry of Housing and the Jewish Agency Committee on Housing, "A Progress 21 The Jewish Agency Board of Governors .J ~l ",\> Report," included in the binder Annual Assemb­ (August, 1972) "Jewish Agency Committee on ~ ..1 ly, prepared by the JA for the February 1973 Housing," p. 2. (Jerusalem: Jewish Agency, ~, .Assembly meetings, p. 4. 1972), p. 2. ~~' I~< ' ~'.;.,', .. DOBS TIlE DlASPORA INFLUENCE ISRAEL? 27 28 receive assistance. In fact. the report pre­ concerning allocation criteria. However, bers of the new Agency sJ pared for the delegates to the second As­ Pincus stressed, it was important that the to control the direction ~ sembly meetings listed some basic policy Board of Governors also be involved in monies are spent. But I dl questions which those responsible for higher this process through its Committee on High­ have a function in drawn, education in Israel had to answer22• They er Education 23. areas which may have bee; included such questions as: At this point one delegate voiced his to more efficient ways of:, objection to Pincus' proposal. Diaspora ney already in the budge! 1. Should higher education be reserved Jewry should only give advice on the allo­ cannot have a proper UIK for an intellectual elite or be available cation of funds, he said, but should have the main priorities 24. to all? no authority. Pincus replied as follows: 2. Should higher education be based on The reconstituted JA has: In absorption, health, social welfare, higher learning for learning's sake or should most restraint in exercizing education, and other functions we must it include technical training? for influence. Representativ~ show that we are not just an arm of the 3. To what extent should there be an ex­ raising organizations in pa Government. That is why I propose that pansion of institutions of higher edu­ sought only to help, advise arl you empower the Board of Governors to cation? will happen if Israel cons~ act on establishing criteria for the alloca­ 4. Should the universities provide special their offers of assistance r tion of money to institutions of higher programs or do more than is presently seen. It is possible, of cou~ education. You can rest assured that the being done to qualify students from will then attempt to exerci JA is not going to set itself up against the Asian and African origins for en­ What is more likely, howev,' Government. trance? JA leaders will simply lo~ ~ In other words, despite the fact that it enterprise. But Israel is u~ Ostensibly, any body allocating money was the reconstituted JA and not the Go­ the JA's offer of assistanc~ to Israeli universities might want to con­ vernment which funded the lion's share of seen in the case of housin$ cern itself with these questions. Certainly the cost of higher education in Israel, the ment has availed itself of tlij it would have to have some criteria for JA sought only that degree of policy con­ The present VIA represent allocating funds. trol that the tax laws of the U.S., Great commenting on this pheno~ The Board of Governors established a Britain and Canada thrust upon it. readiness to accept advice, no permanent committee on higher education This attitude reflects the desires of both is are more relaxed today_ to "help define the criteria for allocations". the WZO representatives and the fund diaspora relations than th~ Louis Pincus appeared before the Assemb­ raising leaders themselves. Michael Sacher, Ben-Gurion era. They are ~ ly's Committee on Higher Education at a member of the JA executive and leader to the diaspora and they',~ the 1973 meetings to urge the adoption of of the British delegation to the first Assemb­ fact that diaspora leaders wi a recommendation that the Higher Educa­ ly, stated that diaspora fund raisers must than just write checks25• ni tion Committee of the Board of Governors not usurp the role of the Israeli Govern­ be authorized to supervise how the univer­ ment. He defined the JA task as follows: sities spend the money allocated to them. It is not my view that the diaspora mem­ 24 The Jerusalem Post, "SPec:: Pincus noted that an independent com­ (June 21, 1971), p. II. ; mittee was about to be established by the 25 Furthermore, he might have Government to make recommendations 23 Reference to Committee deliberations are ber of JA reports suggest thai from the author's notes taken during the meet­ . Government accepted so mani ings. The statement by Pincus, which follows Committee recommendations U 22 The Jewish Agency for Israel. Annual As­ is presented, as far as was possible, in his own recommendations which profClli sembly, op. cit., "Higher Education," p. 213. words. Ministry of Housing had them ~~~r,

~'. ~ ,. ) 27 28 FORUM

j,eation criteria. However. bers of the new Agency should attempt have become a. forum for exchanges of in· 'At was important that the to control the direction in which the formation and discussion of problems of ~ors also be involved in monies are spent. But I do believe they housing, absorption, education and welfare. ~ its Committee on High­ have a function in drawing attention to Israel recognizes the JA as the address of Ii -'~ii areas which may have been ignored, or world Jewry26. pt one delegate voiced his to more efficient ways of spending mo­ As we have already suggested, the long­ tmcus' proposal. Diaspora ney already in the budget. We abroad run implications of this kind of technical ~ give advice on the allo­ cannot have a proper understanding of advice and assistance which JA leaders .. he said. but should have the main priorities 24. offer should not be minimized. Furt~er­ tincus replied as follows: more, according to a very close observer The reconstituted JA has acted with ut· ~th, social welfare, higher and participant in these developments. the , / most restraint in exercizing its potential • other functions we must expertise and know~how which the JA . for influence. Representatives of the fund ·~e not just an arm of the brings to bear on Israel's problems is likely raising organizations in particular have (bat is why I propose that to result in an increase in its influence and sought only to help, advise and assist. What • Board of Governors to authority 21.. Technical. administrative, and will happen if Israel consistently rejects ~g criteria for the alloca­ bureaucratic improvements have policy im­ their offers of assistance remains to be to institutions of higher plications. Reform in one department or f} seen. It is possible, of course, that the JA ~,can rest assured that the one ministry provides an example for will then attempt to exercise its power. 1m set itself up against the others. One should not, in any way, under· What is more likely, however, is that the ~. estimate the long run potential influence JA leaders will simply lose interest in the ~•.', despite the fact that it of the fund raising leaders. Their impa­ enterprise. But Israel is unlikely to ignore It:ted JA and not the Go­ tience with Israeli bureaucracy and many .....,. the JA's offer of assistance. As we have ifUnded the lion's share of established Israeli procedures has already seen in the case of housing, the Govern­ 181" education in Israel, the been felt. But these potentially important ment has availed itself of this help. I:;that degree of policy con· consequences do not really flow from any The present UIA representative in Israel, ~ laws of the U.S., Great deliberate efforts of the reconstituted JA commenting on this phenomenon of Israeli glJada thrust upon it. to shape Israel's public policy. ' readiness to accept advice, noted that Israel­ ~~ects the desires of both The other side of the coin is the fact is are more relaxed today about Israel­ ". tatives and the fund that participation in the JA probably in­ diaspora relations than they were in the :lves.. Michael Sacher. tensified the Jewish commitment of the Ben-Gurion era. They are willing to listen . JA executive and leader non-Zionists. Max Fisher, for example. has to the diaspora and they appreciate the tion to the first Assemb­ used the JA forum to urge greater atten­ fact that diaspora leaders want to do more ~fi;spora fund raisers must tion to Jewish education and the problem than just write checks25• The JA meetings ,Ie of the Israeli' Govern­ of Jewish survival in the diaspora. ,the JA task as follows:

, that the diaspora mem­ 24 The Jerusalem Post, "Special Supplement" (June 21, 1971), p. 11. 26 Interview with Zelig Chinitz, September, 1972 25 Furthermore, he might have added, a num­ 27 Interview with Philip Bernstein, March, 1973. ittee deliberations are ber of JA reports suggest that one reason the A report on the 1972 Board of Governors meet· ~.~tes taken during the meet­ . Gpvernment accepted so many of the Housing ings also suggested that fund raising leaders ;" by Pincus, which follows Committee recommendations is that these are were seeking greater authority and the right to .'" as was possible, in his own recommendations which professionals with the establish program priorities (HdAretz, February Ministry of Housing had themselves favored. 25, 1972, p. 14). DOES THE DlASPORA INFLUENCE ISRAEL? 29 30 " CONVERSATIONS with delegates to the 1973 to Israel. Their presence at the Assembly special stakes or interest doe Assembly were most enlightening with or on the Board of Governors is. in a sense. Cleveland or Philadelphia • respect to the question of JA influence over a recognition of their accomplishments and ',. matter. Belgian. French or E . have in Israel? There are no : Israeli policy 28. Who are the delegates to contributions on behalf of Israel. But it is interests which the delegates : the Assembly? While half represent the important to understand what the dele­ interest. therefore which thei WZO and half non-Zionist fund raising gates. especially the non-Zionists who set to achieve by parlaying their p agencies. no conflicts of interest between the tone for the deliberations. are not. First er over certain areas of the IsI: Zionists and non-Zionists have found ex­ of all. they are not ideologists. Their com­ into influence over other area: pression in any JA meetings. In fact. many mitment is to the survival and develop­ Finally. the vast majority of the representatives of the fund raising ment of Israel as Israel is today. They gates do not live in Israel. • agencies. the "non-Zionists." are actually believe that their task is to see that the therefore. "live" its probleJ: members of Zionist organizations. while to money which they provide and the pro­ for that reason they can al'fll many diaspora Zionists who represent the grams for which they are responsible are larger picture". They are f1'el WZO. Zionism simply means being espe­ properly managed. But because they are concerns. Since. therefore.'it ~ cially sympathetic to Israel. Furthermore. not ideologists they have no vision of a the kinds of issues which the reconstituted different Israel. Lacking such a vision. picture" to which they are • necessarily defer to the judgeD JA has dealt with. do not lend themselves they are satisfied to accept the basic struc­ to ideological division. ture of programs and priorities which the leaders-the only ones whf expected really to know "ili Nevertheless. among the diaspora dele­ Government of Israel dictates. Because they gates. the non-Zionists (who do not like are not ideologists. they could hardly legiti­ ture." In June 1969. the ConfereIk to be called non-Zionists) set the tone. mate too much interference in the internal Needs. a forerunner of the l Since the issues do tend to be concrete and affairs of another country. brought together Israelis and pragmatic. perhaps they feel more compe­ Secondly. they do not seek personal raisers from the diaspora to ;; tent and comfortable in dealing with them. power. They are not professional politi­ major human needs and proJ Some observers. including a WZO repre­ cians whose time and energy is devoted sentative on the JA executive. felt that the to the search for power. if not from ideolo­ programs to meet these need ~ quality of the non-Zionist representatives gical then from personal motives. They are dent of the CJFWF at Fox. made this interesting sE was higher than that of the WZO people. pleased at the respect and deference with / Finally. it is the non-Zionists who. after which they are treated by Israeli leaders. We have come here to offi: all. are paying the bill. While members of They are flattered by the presence of the sonal contribution to Israc Prime Minister and other leading ministers Zionist organizations presumably partici­ l thinking. planning and dJ pate in fund raising campaigns on behalf who come to address them and remain to it "involvemept". Israel's~ of Israel. their role and contributions. at answer questions and listen to their delibe­ that the days have passe4 least in the United States. are admittedly rations. But the last thing they want is more just silent partners. And w< a cause for concern to Zionist leaders them­ responsibility which would necessitate great­ ingful participation in~ selves. er demands on their time. Thirdly. they do Israel will enrich notoniii The delegates are all firmly committed not represent group interests. By and large enrich our own lives. ail:h~

they are fund raising leaders in their local the depth and scope ofi communities. They will bring the message munities 29.}1 of Israel and the operation of the JA back ~-,ri 28 I am relying on my conversations and inter­ ___~I '.~~ views with a number of delegates-primarily to their own communities. But what do VIA people. ' these communities want of Israel? What 29 Cited in :alig Chinitz, lOR;&1 , 'if' I . ~:'::~ .j~~~~ \­

'f·'.~~ liit presence at the Assembly special stakes or interest does Detroit or Irving Blum, CJFWF president in 1972. ltd·· of Governors is, in a sense, Cleveland or Philadelphia or, for that chaired the Committee on Higher Educa­ ~f their· accomplishments and matter, Belgian, French or English Jewry tion at the founding Assembly in 1971. ~n behalf of Israel. But it is . have in Israel? There are no special group His comments about representatives of t Understand what the dele­ interests which-the delegates represent; no Israeli institutions of higher education ty­ "'y the non-Zionists who set interest, therefore which they might seek pify the feeling of JA delegates about Is­ ihe deliberations, are not. First to achieve by parlaying their potential pow­ raeli leaders in general. He expressed his toe not ideologists. Their com­ er over certain areas of the Israeli economy confidence that they ~.. the survival and develop­ into influence over other areas. lel as Israel is today. They Finally, the vast majority of the dele­ ... came away with a feeling that our their task is to see that the gates do not live in Israel. They do not overseas communities have a deep and II; they provide and the pro­ therefore, "live" its problems. Precisely abiding interest in their problems. and ~ch they are responsible are for that reason they can always see "the that they are willing and even anxious, i!iged. But because they are larger picture". They are free of personal to be interpreters of these problems to tj.•. they have no vision of a concerns. Since, therefore, it is "the larger their constituencies in a most positive ia Lacking such a vision, picture" to which they are oriented they and constructive way. 6ed to accept the basic struc~ necessarily defer to the judgement of Israeli I earnestly hope that they will assess ~s and priorities which the leaders-the only ones who can ever be correctly the overseas communities as ~ Israel dictates. Because they expected really to know "the larger pic­ an important pool of experience avail­ ~ts, they could hardly legiti­ ture." able to them in the future 30. ft1: interference in the internal In June 1969, the Conference on Human Ither country. Needs, a forerunner of the JA Assembly, To the delegates to the reconstituted JA ~ey do not seek personal brought together Israelis and leading fund Assembly these are very real sentiments. r;are not professional politi­ raisers from the diaspora to assess Israel's not exercises in rhetoric. By "participa­ lime and energy is devoted major human needs and project long term tion" the delegates from the diaspora real­ ~or power, if not from ideolo­ programs to meet these needs. The Presi­ ly mean that they have something more ~ personal motives. They are dent of the CJFWF at that time, Louis than money to contribute to Israel - they " respect and deference with Fox, made this interesting statement: have knowledge, expertise in technical and managerial fields. and they want Israel to re treated by Israeli leaders. We have come here to offer a more per­ ~ied avail herself of this competence. The thrust by the presence of the sonal contribution to Israel in terms of behind the demand for increased involve­ :r and other leading ministers , thinking, planning and doing. We call ~address ment and participation from diaspora Jew­ them and remain to it "involvement". Israel's leaders agree ~ ry, as reflected in the reconstituted JA. may and listen to their delibe­ , . that the days have passed for us to be be so innocent. altruistic. and even naive te·last thing they want is more just silent partners. And we agree. Mean­ that the political observer may be easily which would necessitate great­ ingful participation in the progress of deceived. But the potential for the exercise ~;th~ir time. Thirdly, they do Israel will enrich not only Israel-it will of real political influence nonetheless re­ BrouP interests. By and large enrich our own lives, and will enrich mains. ;'.1'aising leaders in their local the depth and scope of our own com­ ~y will bring the message munities 29. lie operation of the JA back ~mmunities. But what do 30 Proceedings of the Founding Assembly, up. lilies want of Israel? What 29 Cited in Zelig Chinitz, up. cit. cit.• p. lOS. ~< ""

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