Some things, or possible things, are important enough that we would be foolish to presume or pretend that they do not exist even if we lack any official confirmation or acknowledgment that they in fact exist. One such possible thing is of high importance to security issues in the Middle East. Almost everyone outside of government who writes or speaks about these issues takes as a given that Israel has long had an arsenal of nuclear weapons. No Israeli government, however, has ever said publicly that Israel has such weapons, and neither has the U.S. government, under any administration, said so either.
Let us be very careful in how we discuss this subject. The world is full of widely accepted conventional wisdom, some of which turns out not to be true. After all, we do not know whether Israel has nuclear weapons. So let us not frame a discussion of this subject in terms of assertions of fact. Instead, we can play off the widely held consensus on the subject, discussing implications of the consensus itself and other implications if the consensus happened to be correct.
One disadvantage of this approach is that to adhere scrupulously to the agnostic qualifiers that the approach requires makes for clumsy prose that is uncomfortable to read. A way to cope with this problem is inspired by the late Alfred Kahn, the Cornell economist who served in Jimmy Carter's administration. Kahn is best known for deregulating the airline industry as chairman of the Civil Aeronautics Board. He later was Carter's anti-inflation czar, in which post the blunt-spoken Kahn was once chastised by his political betters at the White House for warning of a possible “depression”. Don't use the word depression, he was told. Kahn complied, but rather than resort to some awkward circumlocution such as “an economic downturn that is more serious than what is customarily called a recession” he started using the term banana as a substitute for the word he was not supposed to utter. When the head of the United Fruit Company complained to him about this negative use of the term, Kahn switched to kumquat as his substitute word whenever he discussed the danger of a depression.
Using both Kahn's technique and his term, in the rest of this essay let kumquats mean “Israel's widely suspected nuclear weapons” or, in its more complete form, “Israel's widely suspected nuclear weapons—so widely and strongly suspected that just about everyone who says anything about related topics takes them as a given, even though we cannot say for certain that they exist.”
Kumquats are not just a subject of conventional wisdom. They have been carefully addressed by serious historians and political scientists and have been taken into account in countless analyses of security problems in the Middle East. They also routinely figure into global rundowns of nuclear weapons arsenals, such as from the Ploughshares Fund or the Arms Control Association , with Israel listed alongside the eight declared nuclear weapons states. The Arms Control Association's inventory estimates the number of kumquats at between 75 and 200. Most other estimates are similar; a more detailed examination of kumquats and associated Israeli military forces that appeared in the Bulletin of the Atomic Scientists twelve years ago used the same range. The fullest understanding of the kumquat program can be found in the writings of the foremost historian of that program, Avner Cohen, including in his most recent book , The Worst-Kept Secret: Israel's Bargain with the Bomb .
Cohen and co-author Marvin Miller argued in an article four years ago that the policy of non-acknowledgment of kumquats has outlived whatever usefulness it had for Israel, and that Israel should change that policy. According to these authors, the policy was grounded in an understanding that Golda Meir and Richard Nixon reached in 1969, by which the United States would not make a public issue out of kumquats as long as Israel did not acknowledge their existence. Cohen and Miller contend that being more transparent about this capability would enable Israel to demonstrate that it is a responsible nuclear power, to participate in arms control endeavors that are in Israel's interests, and to diminish one of the grounds for the international community to treat Israel as an outlaw pariah state. Greater transparency also would facilitate useful discussion and debate among Israelis themselves of issues related to ownership of kumquats, such as questions of safety, command and control, and identification of circumstances in which the kumquats might ever be used.
From a U.S. point of view, the policy of not saying anything publicly about kumquats has also long outlived whatever usefulness it may have had, for the reasons Cohen and Miller offer as well as for others. The very fact that there is now such a broad and strong consensus about the existence of kumquats, which was not yet the case in 1969, is one reason. Moreover, keeping any mention of kumquats out of bounds inhibits full and fruitful discussion about Israel's security, with the Israelis themselves as well as among American politicians and policy-makers. Anyone who professes to have high concern about Israel's security—which includes almost every American politician—ought to favor uninhibited and fully informed discussion of the subject.
Arms control also is at least as important to U.S. interests as to Israel's, at both regional and global levels. Regionally, proposals for a Middle East nuclear-weapons-free zone (or in some variants, a weapons-of-mass-destruction-free zone) are worth discussing, however much realization of such a goal will depend on resolution of political conflicts that will determine the willingness of regional states to give up whatever weapons they currently have. Any such discussion will be a feckless charade, however, as long as neither Israel nor the United States will say anything about kumquats.
That the United States is so out of step on this subject with the rest of the world is taken by the rest of the world as one more example of double standards that the United States applies to shield Israel. Even further, it is taken as not just a double standard but living a lie. Whatever the United States says about nuclear weapons will always be taken with a grain of salt or with some measure of disdain as long as the United States says nothing about kumquats.