THE MIDDLE EAST: WOULD THE HELSINKI PROCESS APPLY? HEARING BEFORE THE COMMISSION ON SECURITY AND COOPERATION IN EUROPE ONE HUNDRED EIGHTH CONGRESS SECOND SESSION JUNE 15, 2004 Printed for the use of the Commission on Security and Cooperation in Europe [CSCE 108-2-5] Available via the World Wide Web: http://www.csce.gov U.S. GOVERNMENT PRINTING OFFICE WASHINGTON : 2005 24–044PDF For sale by the Superintendent of Documents, U.S. Government Printing Office Internet: bookstore.gpo.gov Phone: (202) 512–1800 Fax: (202) 512–2250 Mail Stop SSOP, Washington, DC 20402–0001 COMMISSION ON SECURITY AND COOPERATION IN EUROPE LEGISLATIVE BRANCH COMMISSIONERS HOUSE SENATE CHRISTOPHER H. SMITH, New Jersey BEN NIGHTHORSE CAMPBELL, Colorado Chairman Co-Chairman FRANK R. WOLF, Virginia SAM BROWNBACK, Kansas JOSEPH R. PITTS, Pennsylvania GORDON H. SMITH, Oregon ROBERT B. ADERHOLT, Alabama KAY BAILEY HUTCHISON, Texas ANNE M. NORTHUP, Kentucky SAXBY CHAMBLISS, Georgia BENJAMIN L. CARDIN, Maryland CHRISTOPHER J. DODD, Connecticut LOUISE MCINTOSH SLAUGHTER, New York BOB GRAHAM, Florida ALCEE L. HASTINGS, Florida RUSSELL D. FEINGOLD, Wisconsin MIKE MCINTYRE, North Carolina HILLARY RODHAM CLINTON, New York EXECUTIVE B RANCH COMMISSIONERS LORNE W. CRANER, Department of State VACANT, Department of Defense WILLIAM HENRY LASH III, Department of Commerce (ii) THE MIDDLE EAST: WOULD THE HELSINKI PROCESS APPLY? JUNE 15, 2004 COMMISSIONERS PAGE Hon. Christopher H. Smith, Chairman, Commission on Security and Cooperation in Europe ............................... 1 Hon. Steny H. Hoyer, House Minority Whip .................................................. 1 Hon. Benjamin L. Cardin, Ranking Member, Commission on Security and Cooperation in Europe ............................... 5 Hon. Mike McIntyre, Commissioner, Commission on Security and Cooperation in Europe ............................... 6 WITNESSES Hon. Max M. Kampelman, Ambassador (ret.), Chairman Emeritus, Freedom House ........................................................ 8 His Excellency Natan Sharansky, Israeli Minister of Diaspora Affairs ..... 11 Hon. Mark Palmer, Ambassador (ret.), Co-Founder and Board Member, National Endowment for Democracy ....................................................... 15 Peter Jones, Research Associate, Munk Centre for International Studies, University of Toronto ................................................................. 23 Hon. Craig Dunkerley, Ambassador (ret.), Distinguished Visiting Professor, Near East-South Asia Center for Strategic Studies, National Defense University .................................................................... 30 Professor Michael Yaffe, Academic Dean, Near East–South Asia Center for Strategic Studies, National Defense University ................... 32 APPENDICES Prepared Statement of Hon. Benjamin L. Cardin ....................................... 42 Materials Submitted for the Record by Hon. Max M. Kampelman • Prepared Statement of Hon. Max M. Kampelman ............................... 43 • “From Helsinki to the Mediterranean and the Gulf: Building a Democratic, Prosperous and Peaceful Middle East,” a Freedom House Document ..................................................................................... 46 • “Overview of the Human Dimension Commitments of the Organization for Security and Cooperation in Europe, 1975–2003” ..... 57 Materials Submitted for the Record by Peter Jones • Prepared Statement of Peter Jones ...................................................... 62 • The Preface and Executive Summary from Towards a Regional Security Regime for the Middle East: Issues and Options, by Peter Jones, Published by Stockholm International Peace Research Institute Stockholm, December 1998 .................................... 70 (iii) APPENDICES (CONT’D) PAGE Materials Submitted for the Record by Ambassador Craig Dunkerley • Prepared Statement of Ambassador (ret.) Craig Dunkerley ............... 74 • “What the Helsinki-Middle East Analogy Should Say to U.S. Policymakers,” by Craig Dunkerley, Reprinted from In the National Interest, Vol. III, Issue 17, April 28, 2004 ............................... 77 Prepared Statement of Michael Yaffe .......................................................... 80 Treaty of Peace between the State of Israel and the Hashemite Kingdom of Jordan, October 26, 1994 ...................................................... 90 Letter to David T. Johnson, Ambassador, U.S. Mission to the OSCE, from Members of the Commission on Security and Cooperation in Europe, dated July 15, 1998; and Ambassador Johnson’s Response .... 103 Letter from Commission Members to His Excellency Ariel Sharon, Prime Minister of Israel; His Excellency Hosny Mubarak, President of Egypt; and His Excellency King Abdullah II of Jordan, dated April 17, 2001; and Mr. Sharon’s Response .......................................... 107 “Peace premised under the four ‘oughts’: Under Proper Conditions, Middle East Conference Could Work,” by Max M. Kampelman, Reprinted from The Washington Times, August 15, 2002 ..................... 114 Letter to King Abdullah of Jordan from Members of the Commission, dated October 8, 2003 ............................................................................. 116 “The Middle East Needs its Helsinki,” by His Excellency Natan Sharansky, Reprinted from The International Herald Tribune, Tuesday, March 30, 2004 ....................................................................... 118 (iv) THE MIDDLE EAST: WOULD THE HELSINKI PROCESS APPLY? JUNE 15, 2004 COMMISSION ON SECURITY AND COOPERATION IN EUROPE WASHINGTON, DC The Commission met in Room 334, Cannon House Office Building, Washington, DC, at 2:37 p.m., Hon. Christopher H. Smith, Chairman, Commission on Security and Cooperation in Europe, presiding. Commissioners present: Hon. Christopher H. Smith, Chairman, Com- mission on Security and Cooperation in Europe; Hon. Benjamin L. Car- din, Ranking Member, Commission on Security and Cooperation in Europe; and Hon. Mike McIntyre, Commissioner, Commission on Secu- rity and Cooperation in Europe. Members of Congress present: Hon. Steny H. Hoyer, House Minority Whip and former Chairman and Ranking Member, Commission on Se- curity and Cooperation in Europe. Witnesses present: Hon. Max M. Kampelman, Ambassador (ret.), Chairman Emeritus, Freedom House; His Excellency Natan Sharan- sky, Israeli Minister of Diaspora Affairs; Peter Jones, Research Associ- ate, Munk Centre for International Studies, University of Toronto; Hon. Craig Dunkerley, Ambassador (ret.), Distinguished Visiting Professor, Near East-South Asia Center for Strategic Studies, National Defense University; Professor Michael Yaffe, Ph.D., Near East–South Asia Center for Strategic Studies, National Defense University; Mark Palmer, Am- bassador (ret.), Co-founder and Board Member, National Endowment for Democracy. HON. CHRISTOPHER H. SMITH, CHAIRMAN, COMMISSION ON SECURITY AND COOPERATION IN EUROPE Mr. SMITH. The hearing of the Commission on the Security Coopera- tion in Europe will come to order. I understand the Minority Whip, Steny Hoyer, a member of this Com- mission of long standing, a former Chairman and a great friend of the Commission, of the work of the Commission, does have to leave for an- other appointment. So I yield to my good friend and colleague from Maryland for any opening comments he might have. HON. STENY H. HOYER, HOUSE MINORITY WHIP Mr. HOYER. I thank you very much, Mr. Chairman, and I certainly want to welcome our witnesses. 2 In particular, I want to welcome an extraordinary American, but a real international citizen, in Ambassador Max Kampelman; and, I sup- pose, even more an international citizen, a member of the Knesset, Natan Sharansky, my friend. I want to welcome the other witnesses as well. Mr. Chairman, I regret that—and I told both Ambassador Kampel- man and Mr. Sharansky—I will not be able to stay, unfortunately, be- cause of the rescheduling. My schedule was inconsistent with the change. I apologize for that. But I want to thank you for holding this important hearing at a critical time in world affairs. As you probably know, Mr. Sharansky had first appeared before the Commission in 1986, as well as my friend, Ambassador Kampelman, who is an architect, of course, of the Helsinki Process. He did an ex- traordinary job for our country in Vienna, and before that—long before that, for decades before that and since then—has been a real leader. Mr. Chairman, you may recall this Commission first examined the possibility of a Helsinki-type process for the Middle East in a hearing held on October 14, 1993, when Senator DeConcini and I proposed the possibility of an OSCE-type process for the Middle East. We received testimony from the late Abba Eban and then-ambassador of Egypt, Ahmad Maher El-Sayed. In the intervening years, Mr. Chairman, members of our Commis- sion have continued to raise the possibility of such a process with lead- ers in the countries of Middle East in our travels to the region. I know I personally talked about this with at least two Israeli prime ministers and a number of their foreign ministers. I know that Mr. Cardin has discussed that as well. I believe such a process was relevant then, and is perhaps even more so now. There are those who say these are different times and these are different countries than those that engaged in the Helsinki Process al- most 30 years ago. This is certainly true. However, it is my strong belief, it was then and now, that there is an analogy to be made between the very