President Trump’s recent decision to recognize Jerusalem as Israel’s capital and begin the process of moving the U.S. embassy from Tel Aviv does more than fulfill a campaign promise. It corrects a historic imbalance in U.S. policy and removes accumulated scar tissue that has restricted the flow of new perspectives after a quarter century of U.S.-mediated peace negotiations. It necessitates challenging old and worn assumptions on one of the issues at the heart of the conflict: the Jerusalem fiction.
The crux of the issue as it relates to any form of Palestinian–Israeli peace talks is who will control the Holy City, or Old City, of Jerusalem. That space accounts for 0.38 square miles of land, including where the Jewish temples once stood, and where the Temple Mount, or Haram al-Sharif, today houses the Dome of the Rock and the Al-Aqsa Mosque. It is also where the Western Wall is located, along with the Church of the Holy Sepulchre.
Leaving aside the various religious claims on this tiny parcel of land, having a read on the modern-day history that shaped the city’s status is essential to understanding why U.S. policy has contributed to the negotiating stalemate and will ultimately be helpful in gauging the implications of a policy shift.
In 1947, the United Nations endorsed a partition plan for two states, one Jewish and the other Arab. The Jerusalem-Bethlehem region was to be an enclave under international administration. While the Jews accepted the plan, the Arabs rejected it and launched a war to prevent the establishment of the Jewish state. Without the help of foreign powers, and to the surprise of many, the Jews prevailed, declaring the establishment and independence of Israel on May 14, 1948.
By the war’s end in 1949, Jordan controlled the West Bank, including the Old City of Jerusalem, which it annexed in 1950, along with the 2.3-square-mile surrounding environs, which it referred to as East Jerusalem. The Jordanians destroyed much of the Jewish Quarter, expelled most of its residents, and forbade Jews from entering the Holy City or East Jerusalem.
Israel, for its part, held onto a 15-square-mile portion of what it called West Jerusalem, on land it had long inhabited. That’s where the Israelis set up their government institutions, including the parliament (the Knesset) and supreme court. Meanwhile, no party to the conflict endorsed the view that Jerusalem should be an internationally administered enclave. As a result, U.S. policy shifted.
In 1949, the Truman administration officially recognized Israel with its expanded territory, beyond what was proposed in the 1947 U.N. partition plan, but did not recognize any portion of Israeli-held Jerusalem, instead stating that the city’s status should be resolved through negotiations. To that end, the U.S. embassy was established in Tel Aviv.
In the June 1967 war, Israel captured the West Bank and the Jordanian-held portion of Jerusalem and expanded the city’s municipal boundaries. Still, the U.S kept its embassy in Tel Aviv, preferring a stance of neutrality.