When the Israelis’ controversial twenty-two-day military campaign in Gaza ended, on January 18th, it also seemed to end the promising peace talks between Israel and Syria. The two countries had been engaged for almost a year in negotiations through intermediaries in Istanbul. Many complicated technical matters had been resolved, and there were agreements in principle on the normalization of diplomatic relations. The consensus, as an ambassador now serving in Tel Aviv put it, was that the two sides had been “a lot closer than you might think.”

Iran is a crucial factor motivating renewed Israeli-Syrian negotiations. Illustration by Guy Billout

At an Arab summit in Qatar in mid-January, however, Bashar Assad, the President of Syria, angrily declared that Israel’s bombing of Gaza and the resulting civilian deaths showed that the Israelis spoke only “the language of blood.” He called on the Arab world to boycott Israel, close any Israeli embassies in the region, and sever all “direct or indirect ties with Israel.” Syria, Assad said, had ended its talks over the Golan Heights.

Nonetheless, a few days after the Israeli ceasefire in Gaza, Assad said in an e-mail to me that although Israel was “doing everything possible to undermine the prospects for peace,” he was still very interested in closing the deal. “We have to wait a little while to see how things will evolve and how the situation will change,” Assad said. “We still believe that we need to conclude a serious dialogue to lead us to peace.”

American and foreign government officials, intelligence officers, diplomats, and politicians said in interviews that renewed Israeli-Syrian negotiations over the Golan Heights are now highly likely, despite Gaza and the elections in Israel in February, which left the Likud Party leader, Benjamin Netanyahu, at the head of a coalition that includes both the far right and Labor. Those talks would depend largely on America’s willingness to act as the mediator, a role that could offer Barack Obama his first—and perhaps best—chance for engagement in the Middle East peace process.

A senior Syrian official explained that Israel’s failure to unseat Hamas from power in Gaza, despite the scale of the war, gave Assad enough political room to continue the negotiations without losing credibility in the Arab world. Assad also has the support of Arab leaders who are invested in the Israeli-Palestinian peace process. Sheikh Hamad bin Khalifa al-Thani,* the ruler of Qatar, said last month when I saw him in Doha that Assad must take any reasonable steps he can to keep the talks going. “Syria is eager to engage with the West,” he said, “an eagerness that was never perceived by the Bush White House. Anything is possible, as long as peace is being pursued.”

A major change in American policy toward Syria is clearly under way. “The return of the Golan Heights is part of a broader strategy for peace in the Middle East that includes countering Iran’s influence,” Martin Indyk, a former American Ambassador to Israel, who is now the director of the Saban Center for Middle East Policy, at the Brookings Institution, said. “Syria is a strategic linchpin for dealing with Iran and the Palestinian issue. Don’t forget, everything in the Middle East is connected, as Obama once said.”

A former American diplomat who has been involved in the Middle East peace process said, “There are a lot of people going back and forth to Damascus from Washington saying there is low-hanging fruit waiting for someone to harvest.” A treaty between Syria and Israel “would be the start of a wide-reaching peace-implementation process that will unfold over time.” He added, “The Syrians have been ready since the 1993 Oslo Accords to do a separate deal.” The new Administration now has to conduct “due diligence”: “Get an ambassador there, or a Presidential envoy. Talk to Bashar, and speak in specifics so you’ll know whether or not you’ve actually got what you’ve asked for. If you’re vague, don’t be surprised if it comes back to bite you.”

Many Israelis and Americans involved in the process believe that a deal on the Golan Heights could be a way to isolate Iran, one of Syria’s closest allies, and to moderate Syria’s support for Hamas and for Hezbollah, the Lebanese Shiite group. Both Hamas and Hezbollah are listed as terrorist organizations by the U.S. State Department. There is a competing view: that Assad’s ultimate goal is not to marginalize Iran but to bring it, too, into regional talks that involve America—and perhaps Israel. In either scenario, Iran is a crucial factor motivating each side.

These diplomatic possibilities were suggested by Senator John Kerry, of Massachusetts, the chairman of the Foreign Relations Committee, who met with Assad in Damascus in February—his third visit since Assad took office, in 2000. “He wants to engage with the West,” Kerry said in an interview in his Senate office. “Our latest conversation gave me a much greater sense that Assad is willing to do the things that he needs to do in order to change his relationship with the United States. He told me he’s willing to engage positively with Iraq, and have direct discussions with Israel over the Golan Heights—with Americans at the table. I will encourage the Administration to take him up on it.

“Of course, Syria will not suddenly move against Iran,” Kerry said. “But the Syrians will act in their best interest, as they did in their indirect negotiations with Israel with Turkey’s assistance—and over the objections of Iran.”

President Assad was full of confidence and was impatiently anticipating the new Administration in Washington when I spoke to him late last year in Damascus. Trained as an ophthalmologist, partly in London, he took over the Presidency in 2000, after the death of his father, Hafez Assad, who amassed enormous personal power in thirty years of brutal rule. Bashar had not expected a life as the Syrian leader—his older brother, Basil, who was killed in an accident in 1994, had been groomed to replace their father. Bashar, thirty-four when he became President, was said to be a lesser figure than either of them. He has since consolidated his position—both by modernizing the economy and by suppressing domestic opposition—and, when we spoke, it was clear that he had come to relish the exercise of power.

Assad said that if America’s leaders “are seeking peace they have to deal with Syria and they have to deal with our rights, which is the Golan Heights.” In the Six-Day War, in 1967, Israel seized the Golan Heights, about four hundred and fifty square miles of territory that is rich in Biblical history and, crucially, in water. It includes part of the Jordan River Valley and a plateau overlooking the river which extends to Mt. Hermon, in the north. Syria was left with no access to the Sea of Galilee and the upper Jordan River. Roughly twenty thousand Israeli settlers live there, and they have built towns, vineyards, and boutique hotels in its valleys and strategic heights.

Assad said, “The land is not negotiable, and the Israelis know that we are not going to negotiate the line of 1967.” But he suggested that compromises were possible. “We only demarcate the line,” he said. “We negotiate the relations, the water, and everything else.” Many who are close to the process assume that an Israeli-Syrian settlement would include reparations for the Israelis in the Golan Heights, and, for a time, the right of access to the land. Assad said, “You discuss everything after the peace and getting your land. Not before.”

If Israel wants a settlement that goes beyond the Golan Heights, Assad said, it will have to “deal with the core issue”—the situation in the West Bank and Gaza—“and not waste time talking about who is going to send arms to Hezbollah or Hamas. Wherever you have resistance in the region, they will have armaments somehow. It is very simple.” He added, “Hezbollah is in Lebanon and Hamas is in Palestine. . . . If they want to solve the problem of Hezbollah, they have to deal with Lebanon. For Hamas, they have to deal with Gaza. For Iran, it is not part of the peace process anyway.” Assad went on, “This peace is about peace between Syria and Israel.”

In his e-mail after the Gaza war, Assad emphasized that it was more than ever “essential that the United States play a prominent and active role in the peace process.” What he needed, Assad said, was direct contact with Obama. A conference would not be enough: “It is most natural to want a meeting with President Obama.”

If the Netanyahu government is to trade land for peace, it needs to be assured of domestic political support—and help from Washington. In September, 2007, Israel destroyed what it claimed was a potential Syrian nuclear-weapons reactor during a cross-border raid, an action that won the approval of the Israeli public. (Syria insisted there was no reactor on the site.) At the time, the two countries were already laying the groundwork for the indirect negotiations. In December, 2008, Ehud Olmert, who was then Prime Minister, flew to Ankara, Turkey, and conducted more than five hours of intense talks on the return of the Golan Heights, with the mediation of Prime Minister Recep Tayyip Erdogan, who was often in direct telephone contact with Bashar Assad. But Olmert’s standing was tarnished, both inside Israel, by a series of criminal investigations that led to his resignation (he has denied any wrongdoing), and outside Israel, by the Gaza war, which began days after he left Ankara.

Netanyahu’s coalition government will include, as Foreign Minister, Avigdor Lieberman, the head of the Israel Beytenu Party, who has argued for a measure, aimed at Israeli-Arabs, requiring citizens to take loyalty oaths or forfeit many of their rights, and has rejected any land-for-peace agreement with Syria (though he is open to trading other territories); and, as Defense Minister, Ehud Barak, the Labor Party leader, who has consistently supported talks with Syria. Current opinion polls indicate that the majority of Israelis do not support a full withdrawal from the Golan Heights. Netanyahu himself—in what was widely seen as a plea for votes—declared two days before the elections that he would not return the Golan Heights.

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Daniel Levy, a senior fellow at the New America Foundation, who served on Israeli peace delegations in 1995 and 2001 and also as an adviser to Prime Minister Barak, said that Netanyahu “may have huge coalition problems, not least within his own Likud Party,” and that he “may have to publicly disavow any land-for-peace agreement, given his political position. Can the Syrians swallow that? If they can’t, it means that the only option left will be secret talks.” Levy added, “Barak’s appointment does not change the fundamental dynamics of the coalition, but it means that Bibi [Netanyahu] has a Defense Minister who will be on board for dealing with Syria, who wants to deal with Syria—and who also will be on board for doing it in secret.”

Itamar Rabinovich, a former Israeli Ambassador to Washington, who was Israel’s chief negotiator with Syria under Prime Minister Yitzhak Rabin and informally advises his government on Syrian issues, argued that the war in Gaza had not changed Israel’s essential interest in a Golan Heights settlement: “Gaza is Gaza, and I say that Bashar Assad definitely wants to go ahead with the talks. And he may find a partner in Bibi Netanyahu. Bibi would prefer to make a deal with Syria rather than with the Palestinians.”

But if the talks are to proceed, Rabinovich said, “they will have to be transformed to direct negotiations.” This would require the support and involvement of the Obama Administration. Rabinovich said that he thought Obama, like Netanyahu, “after weighing the pros and cons, will see a Golan Heights settlement as being more feasible” than a deal with the Palestinians. “The talks are serious, and there is a partner.”

The former American diplomat, who is an expert on the Golan Heights, said that it would take between three and five years to evacuate Israelis living there. “During that time, if there is a party moderating the agreement—the U.S., perhaps—it would be necessary for that party to stay engaged, to make sure that the process stays on course,” he said. This factor may explain why Assad wants the U.S. involved. “The key point is that the signing of an agreement is just the beginning—and third parties are needed to reinforce the agreement.”

Obama’s Middle East strategy is still under review in the State Department and the National Security Council. The Administration has been distracted by the economic crisis, and impeded by the large number of key foreign- and domestic-policy positions yet to be filled. Obama’s appointment of former Senator George Mitchell as his special envoy for Middle East diplomacy, on January 22nd, won widespread praise, but Mitchell has yet to visit Syria. Diplomatic contacts with Damascus were expanded in late February, and informal exchanges with Syria have already taken place. According to involved diplomats, the Administration’s tone was one of dialogue and respect—and not a series of demands. For negotiations to begin, the Syrians understood that Washington would no longer insist that Syria shut down the Hamas liaison office in Damascus and oust its political leader, Khaled Meshal. Syria, instead, will be asked to play a moderating role with the Hamas leadership, and urge a peaceful resolution of Hamas’s ongoing disputes with Israel and the Palestinian Authority. The Syrians were also told that the Obama Administration was reëvaluating the extent of Syria’s control over Hezbollah. (The White House did not respond to requests for comment.)

The United States has been involved in negotiations over the Golan Heights before, notably those brokered by Bill Clinton in Shepherdstown, West Virginia, in 2000. Those talks, despite their last-minute collapse over border disputes, among other issues, provided the backbone for the recent indirect negotiations. Martin Indyk, who advised Clinton at Shepherdstown, said that those talks were about “territory for peace.” Now, he said, “it’s about territory for peace and strategic realignment.”

During the long campaign for the White House, Obama often criticized Syria for its links to terrorism, its “pursuit of weapons of mass destruction,” and its interference in Lebanon, where Syria had troops until 2005 and still plays a political role. (Assad dismissed the criticisms in his talk with me: “We do not bet on speeches during the campaign.”) But Obama said that he would be willing to sit down with Assad in the first year of his Presidency without preconditions. He also endorsed the Syrian peace talks with Israel. “We must never force Israel to the negotiating table, but neither should we ever block negotiations when Israel’s leaders decide that they may serve Israeli interests,” he said at the annual conference, last June, of the American Israel Public Affairs Committee (AIPAC). “As President, I will do whatever I can to help Israel succeed in these negotiations.”

The differences between Obama’s Syria policies and those of the Administration of George W. Bush have attracted relatively little attention. In December, 2006, the Iraq Study Group called for direct talks with Syria. In a speech soon afterward, Bush explained why he disagreed. “I think it would be counterproductive at this point to sit down with the Syrians, because Syria knows exactly what it takes to get better relations,” he said. The President then provided a list: stop its support for Hamas and Hezbollah; stop meddling in Lebanon; coöperate in the investigation of the murder, in 2005, of Rafik Hariri, Lebanon’s former Prime Minister; and stop serving as “a transit way for suicide bombers heading into Iraq.” (The Bush Administration accused Syria of failing to monitor its long border with Iraq, and, last October, staged a raid into Syria, killing eight people, one of whom was said to be a senior Al Qaeda in Mesopotamia operative. A huge number of Iraqi refugees have also fled to Syria, straining the economy.) Bush added dismissively, “When people go sit down with Bashar Assad, the President of Syria, he walks out and holds a press conference, and says, ‘Look how important I am. People are coming to see me; people think I’m vital.’ ”

An official who served with the Bush Administration said that late last year the Administration thought it was unrealistic to engage Syria on the Golan Heights. “The Bush view was, if we support the talks, with no preconditions, what are we going to say to our supporters in Lebanon who are standing up to Hezbollah? ‘You stood up to Hezbollah’—and where are we?”

Assad noted late last year that the Bush White House did not “have to trust me, because they are not involved in peace anyway. . . .They created a lot of problems around the world and they exacerbated the situation in every hot spot [and] made the world more vulnerable to terrorism. This is the most important thing,” he said. “Nobody can say the opposite.”

As the Bush era wound down, U.S. allies were making their own openings to Syria. In mid-November, David Miliband, the British Foreign Secretary, distressed the White House by flying to Damascus for a meeting with Assad. They agreed that Britain and Syria would establish a high-level exchange of intelligence. Vice-President Dick Cheney viewed the move by Britain—“perfidious Albion,” as he put it—as “a stab in the back,” according to a former senior intelligence official.

In his e-mail, Assad praised the diplomatic efforts of former President Jimmy Carter. “Carter is most knowledgeable about the Middle East and he does not try to dictate or give sermons,” Assad said. “He sincerely is trying to think creatively and find solutions that are outside the box.” Carter’s calls for engagement with Hamas have angered many in Israel and America. In “We Can Have Peace in the Holy Land,” published in January, Carter described Syria as “a key factor in any overall regional peace.” Last December, Carter visited Syria, and met not only with President Assad but with Khaled Meshal, the Hamas leader.

A senior White House official confirmed that the Obama transition team had been informed in advance of Carter’s trip to Syria, and that Carter met with Obama shortly before the Inauguration. The two men—Obama was accompanied only by David Axelrod, the President’s senior adviser, who helped arrange the meeting; and Carter by his wife, Rosalynn—discussed the Middle East for an hour. Carter declined to discuss his meeting with Obama, but he did write in an e-mail that he hoped the new President “would pursue a wide-ranging dialogue as soon as possible with the Assad government.” An understanding between Washington and Damascus, he said, “could set the stage for successful Israeli-Syrian talks.”