Expanding the Abraham Accords (U.S. House Committee on Foreign Affairs, Subcommittee on Middle East, North Africa, and Central Asia)

Hearing	Expanding the Abraham Accords
Committee	U.S. House Committee on Foreign Affairs, Subcommittee on Middle East, North Africa, and Central Asia
Date	March 9, 2023

 

Hearing Takeaways:

• The Abraham Accords: The hearing focused on the Abraham Accords, which refer to a series of joint-normalization statements and agreements between Israel, Bahrain, the United Arab Emirates (UAE), and Morocco. Of note, Sudan has also pledged to join the Abraham Accords. Subcommittee Members and the hearing’s witnesses praised the Abraham Accords as beneficial for the Middle East, North Africa, and the U.S. and stated that Accords would promote regional security, support the sharing of technology and information, and foster economic growth. They expressed interest in working to strengthen and expand the Abraham Accords.
  • The Negev Forum and Regional Cooperation: Subcommittee Members and Mr. Shapiro applauded the Biden administration’s establishment of the Negev Forum, which seeks to support and deepen the relationships of Abraham Accords member countries. They noted how the Negev Forum had established six working groups meant to address regional security, food and water security, tourism, trade, health, and education and tolerance. Mr. Shapiro highlighted how over 40 U.S. government personnel from nine government agencies had taken part in the January 2023 Negev Forum working group meetings and commented that the U.S. could build upon this success. Subcommittee Chairman Joe Wilson (R-SC) also noted how the U.S. had coordinated the first joint-military exercise between Bahrain, the UAE, and Israel in the Red Sea in November 2021.
  • Additional U.S. Support for the Abraham Accords: The hearing’s witnesses provided several recommendations for how the U.S. could provide further support for the Abraham Accords. Mr. Greenway stated that the U.S. should ensure that resources dedicated to regional peace would encompass the Abraham Accords and work with Abraham Accords members to reestablish the Abraham Fund. He explained that this Fund would provide the necessary financial and technical support to reduce poverty, expand infrastructure, and improve health and education. Gen. Votel recommended that the U.S. support people-to-people exchanges within the Middle East and North Africa. He commented that these exchanges would enable the citizens of Abraham Accords member countries to directly observe the benefits of the Accords. Mr. Shapiro further noted how almost every cabinet department and federal agency has an international affairs department and most have resources and programs available to promote international cooperation. He suggested that the U.S. could leverage these resources and programs to support Abraham Accords initiatives.
  • Impact on U.S. Adversaries: Subcommittee Chairman Wilson, Mr. Greenway, and Gen. Votel stated that the Abraham Accords would serve as a regional bulwark against the malign influences of Iran, Russia, and China. They also stated that the Abraham Accords would reenforce the U.S.’s ties to the Middle East and North Africa, which would provide the U.S. with economic and security benefits.
  • Ability of the Abraham Accords to Replace Lost Russian Energy: Subcommittee Chairman Wilson and Mr. Greenway highlighted how there are already regional energy production and refining agreements underway. They noted how this energy is being used to replace Russian energy that has been taken out of the world market following Russia’s invasion of Ukraine. They expressed interest in working to support the development of additional regional energy projects to replace the energy that had traditionally come from Russia.
  • Potential of the Abraham Accords to Combat Antisemitism: Rep. Tim Burchett (R-TN) and Mr. Shapiro expressed interest in leveraging the Abraham Accords to combat antisemitism abroad. Mr. Shapiro suggested that the U.S. could support these efforts through having the U.S. Holocaust Memorial Museum assist countries in developing Holocaust education curricula.
  • Prospects of Expanding the Abraham Accords: Subcommittee Members and the hearing’s witnesses expressed interest in expanding the Abraham Accords within the Middle East and North Africa, as well as to parts of Europe and Asia. Possible expansion countries mentioned during the hearing included Saudi Arabia, Azerbaijan, Oman, Mauritania, Qatar, Kuwait, Indonesia, Somalia, Niger, and Malaysia. Gen. Votel stated however that efforts to expand the Abraham Accords should be prioritized within the Middle East before the Accords are expanded beyond the region.
  • Prospects of Saudi Arabia Joining the Abraham Accords: Several Subcommittee Members and the hearing’s witnesses expressed particular interest in efforts to normalize relations between Israel and Saudi Arabia and to bring Saudi Arabia into the Abraham Accords. They stated that the normalization of relations between the two countries would have “transformational” effects given Saudi Arabia’s centrality and influence as a leading nation in the Arab and Islamic world. They acknowledged however that any potential treaty between the two countries would take time to develop. They also stated that the U.S. should work to ensure that this treaty advances its own interests in the region. They specifically raised concerns over Saudi Arabia’s current efforts to develop a nuclear program and called on Saudi Arabia to make assurances that this program will be peaceful in nature. Of note, Rep. Brad Sherman (D-CA) argued that Saudi Arabia should be fully barred from pursuing a nuclear program as a regime change in the country could result in hostile parties obtaining access to nuclear weapons.
  • Proposal to Establish an Abraham Accords Free Trade Zone: Mr. Greenway and Mr. Shapiro recommended that the U.S. support the creation of an Abraham Accords free trade area. They commented that this free trade area would help Abraham Accords countries to achieve their aspirations, preserve the integrity and stability of global markets, and provide a viable alternative to China’s Belt and Road Initiative. They suggested that the U.S. leverage existing free trade agreements and other bilateral agreements between the U.S. and Abraham Accords member countries (as well as amongst the Abraham Accords member countries themselves).
  • The Special Envoy for the Abraham Accords Act: Rep. Mike Lawler (R-NY) and Mr. Shapiro expressed support for the bipartisan Special Envoy for the Abraham Accords Act, which would create a Special Envoy for the Abraham Accords position. Mr. Shapiro noted how this newly created position could coordinate an “expansive and diverse” set of U.S. government and non-government programs that support regional integration in various fields. He also stated that the establishment of a Special Envoy for the Abraham Accords position would signal the commitment of the U.S. to the Abraham Accords to current and prospective members, as well as other countries.
• Consideration of the Israel-Palestine Conflict: Subcommittee Members and the hearing’s witnesses expressed concerns that public opinion within the Middle East and North Africa regarding the Israeli-Palestinian conflict is impacting the willingness of many countries to join and engage with the Abraham Accords. They stated that improving the relationship between Israel and Palestine is therefore key to expanding the Abraham Accords. They also expressed interest in leveraging the Abraham Accords to support regional cooperation and address areas of mutual interest, which could foster the conditions needed for an eventual peace deal between Israel and Palestine.
  • Potential Support for Palestinian Infrastructure Projects: Mr. Greenway and Mr. Shapiro mentioned how the Abraham Accords included a fund that would enable member countries to contribute to infrastructure projects within the Palestinian territories. They suggested that these types of projects and initiatives could demonstrate the benefits associated with collaboration, which could make the Palestinians less resistant to pursuing a broader peace deal with Israel over time.
  • Prospects for a Two-State Solution: Rep. Brian Mast (R-FL) and Rep. Brad Schneider (D-IL) expressed opposition to pursuing a two-state solution to the Israeli-Palestinian conflict within the near-term. They warned that this approach would result in the establishment of a terrorist state in Palestine that would immediately face sanctions. 
  • Concerns over Potential Israeli Annexation of Palestinian Territories: Rep. Brad Sherman (D-CA) and Mr. Shapiro raised concerns over Israeli Prime Minister Benjamin Netanyahu’s recent comments about annexing part of the West Bank. Mr. Shapiro commented that such annexation could jeopardize both the Abraham Accords and a two-state solution for the Israel-Palestine conflict.
• Concerns Regarding Iran: Subcommittee Members and the hearing’s witnesses noted how Israel and the U.S.’s Arab allies are concerned about Iran’s efforts to destabilize the Middle East and North Africa and to obtain nuclear weapons. They stated that the Abraham Accords could help to unify the region to respond to these threats. They contended that the U.S. must do all that it could do to prevent Iran from obtaining nuclear weapons. Of note, Mr. Shapiro stated that the U.S. could not re-enter the Iran nuclear deal at this point given recent developments (including Iran’s suppression of domestic protests and support for Russia).
• Israel’s Integration into the U.S. Central Command (CENTCOM): Subcommittee Members and Gen. Votel further noted how the Abraham Accords had coincided with Israel being moved into the responsibility of CENTCOM from U.S. European Command (EUCOM). They stated that this move supports military collaboration between the U.S. and its Middle Eastern partners.

Hearing Witnesses:

1. The Hon. Robert Greenway, President and Executive Director, Abraham Accords Peace Institute, Adjunct Fellow, Hudson Institute, Former Deputy Assistant to the President and Senior Director of Middle East North Africa, National Security Council
2. Gen. Joseph L. Votel, U.S. Army (Retired), Distinguished Fellow, Middle East Institute, Former Commander, U.S. Central Command
3. Mr. Daniel B. Shapiro, Distinguished Fellow, Atlantic Council, Former United States Ambassador to Israel

Member Opening Statements:

Subcommittee Chairman Joe Wilson (R-SC):

• He remarked that the hearing would focus on identifying opportunities to strengthen and expand the Abraham Accords, which he described as “extraordinarily successful.”
• He stated that the signing of these accords by the leaders of Bahrain, Israel, and the UAE represent the single most significant step toward stable and positive Arab-Israeli relations since Egypt and Jordan normalized relations with Israel.
  • He also noted how Morocco has formally joined the Abraham Accords and how Sudan has pledged to join the Accords.
  • He further highlighted how Middle Eastern and North African countries have signed additional memorandums of understanding (MOUs) with Israel to address issues of mutual concern.
• He described the Abraham Accords as a “win” for the Middle East, North Africa, and the U.S. and commented that the Abraham Accords would promote security, support the sharing of technology and information, and foster economic growth.
• He discussed how Israel and the U.S.’s Arab allies live under the constant threat of Iranian-backed terrorism.
  • He stated that Iran is continuing their uranium enrichment practices, testing satellite launch vehicles, and proliferating drones to its proxies and Russia.
• He criticized the Biden administration for its continued pursuit of a nuclear deal with Iran and asserted that Iran is negotiating in bad faith.
  • He commented that the U.S. must work with its partners to deter Iran’s threats to maintain peace and stability in the region.
• He then noted how the Abraham Accords had coincided with Israel being moved into the responsibility of CENTCOM from EUCOM.
  • He stated that this move supports military collaboration between the U.S. and its Middle Eastern partners.
• He expressed hope that more countries will join the Abraham Accords during the Biden administration and stated that there exist questions as to whether the Biden administration is sufficiently prioritizing the Abraham Accords.
• He commended the Biden administration for embracing the name of the Abraham Accords and for working to convene Israel and Arab countries through the Negev Forum.
  • He called the Negev Forum important for helping to deepen the relationships between Israel, the UAE, Egypt, Morocco, Bahrain, and the U.S.
  • He also stated that the Negev Forum shows other countries the positive benefits that can come from a relationship with Israel.
• He also remarked that the Abraham Accords have ushered in “unprecedented” economic cooperation and noted how there is occurring “significant” increases in bilateral trade between Abraham Accords member countries.
  • He added that these member countries are pursuing joint projects in technology, energy, infrastructure, health care, and tourism.
• He stated however that there remained work to be done regarding the Abraham Accords and expressed interest in working to bring more countries (including Saudi Arabia) into the Accords.

Rep. Kathy Manning (D-NC):

• She recounted how the League of Arab States had issued its “three noes” in 1967 and explained that these “three noes” had referred to their refusal to make peace with Israel, their refusal to recognize Israel, and their refusal to engage in negotiations with Israel.
  • She noted however that Egypt and Jordan had subsequently backed away from this declaration and had made peace with Israel in 1979 and 1994, respectively.
• She mentioned how Bahrain, Morocco, the UAE, and Sudan had recently agreed to normalize relationships with Israel through the Abraham Accords.
  • She commented that these Accords have led to “incredible” opportunities for regional coordination and cooperation.
• She also stated that the countries involved in the Abraham Accords had recognized a common interest in cooperating to counter the threats posed by Iran, which she referred to as the principal source of regional instability.
• She remarked that Iran’s nuclear weapons program, ballistic missile program, unmanned air vehicle (UAV) program, and support for armed proxy groups pose “deep challenges” to security and stability across the Middle East.
  • She indicated that these armed proxy groups include Hezbollah in Lebanon, Hamas in the Gaza Strip, and the Houthis in Yemen.
• She then described Israel’s recent integration into CENTCOM as a “huge” step toward creating a more secure and prosperous region.
  • She also stated that Israel’s role in the recent International Maritime Exercise (IMX) and increased intelligence sharing, communication, and training have demonstrated significant progress toward a more integrated regional security architecture.
• She expressed interest in identifying opportunities for expanded security cooperation, the prospect of a more integrated regional security framework, and how shared security concerns can promote more normalization of relations between Israel and its neighbors.
• She asserted however that security cooperation alone could not serve as the basis for relations between Abraham Accords countries and mentioned how the Biden administration had established the Negev Forum to expand Israel’s cooperation with its neighbors.
  • She noted that the Negev Forum had established six working groups on regional security, food and water security, tourism, trade, health, and education and tolerance.
• She stated that the Negev Forum has already promoted regional cooperation beyond security issues and mentioned how the signing of the Israel-UAE free trade agreement aims to bolster economic cooperation between the two countries.
  • She commented that there exist opportunities for Abraham Accords countries to address trade, tourism, technology, health, cybersecurity, and green energy.
• She expressed interest in identifying ways to advance Israeli-Arab engagement, promote greater regional cooperation, and engage the private sector and civil society in these efforts.
• She also stated that the U.S. must work to include Palestinians in regional cooperative initiatives and in developing a comprehensive peace deal between Israel and Palestine.
  • She noted how “key” additional Middle Eastern and North African countries have expressed interest in normalizing relations with Israel on the condition that Israel and Palestine make progress toward a peace agreement. 
• She concluded that the Abraham Accords have received bipartisan support within the U.S. and expressed interest in working to enhance and expand the Abraham Accords.

Witness Opening Statements:

The Hon. Robert Greenway (Abraham Accords Peace Institute, Former Deputy Assistant to the President and Senior Director of Middle East North Africa, National Security Council):

• He first noted how his organization, the Abraham Accords Peace Institute is a non-partisan and non-profit organization dedicated to supporting the implementation and expansion of the Abraham Accords.
  • He testified that the Institute works with stakeholders to develop new opportunities in the fields of trade, investment, tourism, and people-to-people relationships.
• He remarked that the Abraham Accords constitute the beginning of the transformation of a region that will continue to be a “vital battleground” for driving the security and economic interests of world powers.
• He asserted that the American leadership had been a necessary but insufficient condition for the emergence of the Abraham Accords.
  • He also contended that American leadership would remain essential to the growth and evolution of the Abraham Accords.
• He remarked that the alignment of the U.S.’s regional partners and allies in the economic and security domains would ensure that the Abraham Accords would endure.
• He stated that the Abraham Accords are helping to constrain the malign influences of Iran and Russia and the predatory practices of China.
  • He commented that these countries will continue to manufacture and exploit fissures among the U.S. and its regional partners if the U.S. fails to take advantage of the favorable shift in the region’s security and economic architecture.
• He remarked that the U.S.’s support for the Abraham Accords would enable the U.S. to more cost efficiently to advance and secure its interests.
• He highlighted how the Abraham Accords had enabled trade between Israel and its regional peace partners as a whole to reach $3.47 billion in 2022.
  • He indicated that this amount had only been $593 million in 2019.
• He also noted how 470,700 Israelis had traveled to Abraham Accords member countries in 2022, which is up from 39,300 in 2019.
  • He mentioned how 17 new flight routes have been established to accommodate this growth in travel.
• He stated that cooperation among Abraham Accords countries has flourished in the fields of water and food security, renewable energy, technology and innovation, health care, sports, trade, and investment.
• He recommended that the U.S. support the creation of an Abraham Accords free trade area.
  • He commented that this free trade area would help Abraham Accords member countries to achieve their aspirations, preserve the integrity and stability of global markets, and provide a tangible alternative to China’s Belt and Road Initiative.
• He suggested that the U.S. leverage the existing “matrix” of free trade agreements and other bilateral agreements between the U.S. and Abraham Accords member countries (as well as amongst the Abraham Accords member countries themselves).
  • He noted how the Rand Foundation had found that the benefits of a multilateral free trade area encompassing current Abraham Accords signatories would create more than 150,000 new jobs and new economic activity exceeding $75 billion.
  • He added that a multilateral free trade area among the expanded number of potential Abraham Accords signatories could create as many as four million new jobs and $1 trillion in new economic activity.
• He also stated that the U.S. should ensure that resources dedicated to regional peace would encompass the Abraham Accords and work with Abraham Accords member countries to reestablish the Abraham Fund.
  • He explained that this Fund would provide the necessary financial and technical support to reduce poverty, expand infrastructure, and improve health and education.
• He recommended that the U.S. work to connect Abraham Accords member countries and other partners to establish new overland trade routes between the Mediterranean Sea and the Persian Gulf.
  • He commented that such routes would “revolutionize” east-west trade, decrease associated transit times, costs, and risks, and strengthen resilience and prosperity.
• He then remarked that the U.S. should support and resource a new and enduring regional security architecture in the Middle East and commented that the Abraham Accords could serve as a foundation for this architecture.
  • He added that this architecture would reduce (although not eliminate) the need for the U.S. to maintain a robust presence within the region.
• He further recommended that the U.S. leverage the Abraham Accords to offset the loss of European energy following Russia’s invasion of Ukraine.
• He remarked that U.S. leadership had played a crucial role in establishing the Abraham Accords and asserted that sustained U.S. investment would be necessary for these Accords to achieve their full potential.
  • He warned that a setback in the Abraham Accords would constrain the region’s recovery from the COVID-19 pandemic, erode support for counterterrorism cooperation, create an opportunity for malign influence from Russia and China, compromise regional stability, disrupt global markets, discourage essential cooperation, and provide an opportunity for the resurgence of both ISIS and Al-Qaeda.

Gen. Joseph L. Votel (Middle East Institute, Former Commander, U.S. Central Command):

• He stated that he has long been supportive of both the signing of the Abraham Accords and the decision to include Israel in the CENTCOM’s designated area of responsibilities.
  • He called these actions “timely and essential steps” in promoting stability and security across the Middle East and North Africa.
• He remarked that the U.S. has a fundamental interest in strengthening the Abraham Accords and ensuring that these Accords achieve their full political, economic, and security potential.
  • He asserted that the U.S.’s continued involvement with the Middle East and North Africa is critical and stated that the region depends on the U.S. for its leadership, its capabilities, and its values-based approaches.
• He also called it important for the U.S. to maintain continuous dialogue with the Middle East and North Africa and commented that the U.S.’s failure to attend to the region’s underlying tensions would ultimately harm the U.S.’s interests.
  • He asserted that the U.S. must promote better relationships and more substantial cooperation and collaboration amongst its regional friends.
• He remarked that the U.S. must approach the Middle East and North Africa with a sense of urgency and commented that the region is experiencing rapid changes.
  • He specifically highlighted the developments in Saudi Arabia as an example of these rapid changes.
• He also warned that the U.S.’s adversaries and strategic competitors are aggressively working to exert their influence over the Middle East and North Africa.
  • He noted how Iran is continuing its pursuit of nuclear capabilities and is doubling down on its malign influence activities across the region.
  • He mentioned how Chinese influence is present across the region and stated that China is seeking to promote their own political and economic objectives.
• He remarked that the U.S. must be engaged within the Middle East and North Africa and stated that this engagement will likely involve improved security cooperation efforts, shared awareness and responsibility, and greater resilience amongst the U.S.’s patterns within the region.
  • He asserted that better equipment and more U.S. troops alone would not address the U.S.’s issues within the region.
• He stated that the Abraham Accords are an “essential hedge platform” to promote better understanding, shared interests and responsibilities, and common expectations that lead to better trust.
• He then identified several potential obstacles to expanding the Abraham Accords within the Middle East and North Africa.
  • He stated that Iran’s pursuit of a nuclear weapon and continued efforts to sow instability and chaos across the region would undermine the U.S.’s regional interests.
  • He also noted that resolving the Israeli-Palestinian conflict remains essential for many countries within the region.
  • He further stated that geopolitics (including the response to Russia’s invasion of Ukraine and China’s aggression towards Taiwan) will impact the region.
• He remarked that the U.S. must play a leadership role in addressing the aforementioned obstacles and act in a swift fashion.

The Hon. Daniel B. Shapiro (Atlantic Council, Former United States Ambassador to Israel):

• He mentioned how he directs the N7 Initiative, which convenes conferences between Israeli and Arab experts to generate multilateral policy and program ideas to support normalized relations between those countries.
• He remarked that the U.S. has recently experienced significant progress in building upon the Abraham Accords and attributed much of this recent progress to the Biden administration’s work on the issue.
  • He specifically highlighted the Biden administration’s work on the Negev Summit, the Negev Forum, opening airspace, promoting free trade, and fostering cybersecurity cooperation among Middle Eastern and North African countries.
• He stated however that several challenges remain related to the prospects for peace within the Middle East and North Africa.
  • He noted that Jordan had not yet joined the Negev Forum, that there appears to be declining public support within the region for normalized relations with Israel, and that spiking Israeli-Palestinian tensions may weaken the popularity of the Abraham Accords.
• He asserted however that none of these challenges are diminishing the progress that is being made regarding the Abraham Accords.
• He remarked that the U.S. should work to combine U.S.-led security coordination with regionally led U.S.-supported integration in civilian fields.
  • He commented that the Biden administration and CENTCOM’s leadership have embraced this responsibility and noted how they have sponsored joint exercises that improve interoperability, facilitated high-level strategic discussions on addressing the threats posed by Iran and its proxies, and initiated the integration of air defense systems across U.S. partners.
• He stated that while these coordination and integration efforts would likely not result in a North Atlantic Treaty Organization (NATO) equivalent, he asserted that these efforts would still benefit participants.
• He also remarked that the U.S. should support a regionally led web of non-defense integration and commented that the Middle East and North Africa should develop their own regional organization.
  • He commented that this proposed regional organization should work to develop collaboration at every level of governance, support the collaboration and integration of resources and capabilities, maintain a regional free trade zone, and reinforce linkages between the private sector, academia, professional organizations, religious communities, and other elements of civil society.
  • He added that the success of this proposed regional organization would create incentives for other states to work to join the organization.
• He then remarked that the U.S. should draw upon all of its resources and expertise to advance its own interests related to Middle East and North Africa regional integration efforts.
  • He highlighted how over 40 U.S. government personnel from nine government agencies had taken part in the January 2023 Negev Forum working group meetings and commented that the U.S. could build upon this success.
• He noted how almost every cabinet department and federal agency has an international affairs department and most have resources and programs available to promote international cooperation that serves U.S. interests.
  • He stated that the members of the Abraham Accords Caucuses in the U.S. House of Representatives and U.S. Senate could play key roles in supporting these federal agencies in their efforts to promote and build upon the Abraham Accords.
• He expressed support for the bipartisan Special Envoy for the Abraham Accords Act, which would create a Special Envoy for the Abraham Accords.
  • He commented that this newly created position could coordinate an “expansive and diverse” set of U.S. government and non-government programs that support regional integration throughout various fields.
• He then remarked that the U.S. must provide special focus and priority to achieving the normalization of relations between Israel and Saudi Arabia.
  • He acknowledged that this normalization process would likely take time and might need to occur in phases.
  • He commented that the normalization of relations between the two countries would have “transformational” effects given Saudi Arabia’s centrality and influence as a leading nation in the Arab and Islamic world.
• He stated that the normalization of relations between Saudi Arabia and Israel is in the U.S.’s interest and that the U.S. should be prepared to contribute to these agreements.
  • He asserted however that such a normalization of relations between the two countries could not be divorced from the U.S.’s own relationship with Saudi Arabia and other regional interests.
• He stated that if the U.S. is expected to provide certain benefits to Saudi Arabia as a condition for normalizing relations with Israel, then the U.S. must also demand certain items from Saudi Arabia.
  • He indicated that these items would include a commitment to stable oil markets and to not act in ways that would undermine the U.S.’s interests regarding Russia and China.
• He also noted that the U.S. should make demands on Israel as a condition for its involvement in facilitating an agreement between Israel and Saudi Arabia.
  • He indicated that these demands should include Israel’s continued commitment to a two-state solution with Palestine.
• He lastly remarked that the U.S. should work to leverage the success of the Abraham Accords to address the deteriorating conflict between Israel and Palestine.
  • He commented that the Abraham Accords could help to break down both Israeli and Palestinian resistance to normalizing relations and enable Arab states to positively influence both sides in their pursuit of a peace agreement.

Congressional Question Period:

Subcommittee Chairman Joe Wilson (R-SC):

• Chairman Wilson remarked that the Abraham Accords have promoted stability and security in the Middle East and North Africa. He commented that this increased stability and security ultimately benefits the U.S. He discussed how Abraham Accords countries have made “significant” commitments regarding trade, tourism, energy, and infrastructure investments. He stated that U.S. efforts to expand the Abraham Accords would promote cooperation amongst its allies, which would weaken the influence of China and Russia in the region. He remarked that China and Russia have engaged in predatory lending and expansionism within the region under the guise of diplomatic investment. He asserted that China and Russia pose threats to the sovereignty and security of the region’s countries. He asked Mr. Greenway to project the strategic impact of the U.S.’s promotion of trade through the Abraham Accords.
  • Mr. Greenway remarked that the U.S. has an opportunity to leverage its aligned partners and allies in the Abraham Accord at the expense of China. He also stated that the main benefit that the U.S. derives from the Middle East and North Africa has always been economic in nature and asserted that the U.S. must therefore remain engaged in the region. He then discussed how China is dependent on the region for energy and commented that this energy could support a hypothetical Chinese military incursion. He stated that this dependence creates a strategic imperative for China to maintain relationships with the region’s countries. He mentioned how Chinese President Xi Jinping had recently convened a large meeting of the region’s heads of state during a visit to Riyadh, Saudi Arabia. He contended that the U.S.’s failure to prioritize its engagement in the region would cede its partners, allies, and strategic objectives to China. He also stated that U.S. engagement in the region would help to promote stability in the global energy markets. He then discussed how the region serves a transit point for all goods and services moving between Europe and Asia, which underscored the importance of U.S. engagement in the region. He asserted that the region constitutes an “unnatural place” for the Chinese to operate and highlighted how the U.S. has maintained a presence in the region for generations. He commented that the U.S.’s sustained presence within the region provides it with a trust advantage over China. He lastly remarked that the U.S.’s regional allies and partners want the U.S. to play a leadership role in the Middle East and North Africa.
• Chairman Wilson then mentioned how the U.S. had coordinated the first joint-military exercise between Bahrain, the UAE, and Israel in the Red Sea in November 2021. He discussed how the U.S.’s relationship with Bahrain is over a century old and mentioned how the U.S. is currently preparing to ship advanced fighter jets to the country. He asked Gen. Votel to identify the shared security concerns in the Red Sea that drive cooperation between Israel and Saudi Arabia.
  • Gen. Votel remarked that the proliferation of autonomous systems is a particular concern for the U.S.’s partners in the Middle East and North Africa. He mentioned how there had recently occurred a deadly attack on Abqaiq and commented that the fallout from this attack continues to resonate throughout the entire region. He stated addressing the proliferation of autonomous systems in the Persian Gulf would build trust between Israel and Saudi Arabia.
• Chairman Wilson acknowledged that his question period time had expired.

 Rep. Kathy Manning (D-NC):

• Rep. Manning asked Gen Votel to identify the most significant barriers to advancing the Abraham Accords and to expanding on the work that is currently underway.
  • Gen. Votel remarked that the U.S.’s policy toward Iran is a topic that resonates with its partners in the Middle East and North Africa. He commented that these countries are looking for a clear articulation of how the U.S. plans to eliminate the threats posed by Iran. He also stated that many countries in the region are concerned over the Israeli-Palestinian conflict. He commented that these concerns are particularly pronounced in Saudi Arabia given the country’s custodial role regarding Islam’s holiest sites. He then discussed how many countries in the region (particularly Saudi Arabia) are seeking investments and suggested that U.S. investments and capital markets could be leveraged to promote the Abraham Accords. He mentioned how Saudi Arabia is currently working to develop renewable energy and other technologies as part of their diversification plan.
• Rep. Manning asked Gen. Votel to indicate whether Middle Eastern and North African countries are interested in the U.S.’s long-term strategy for dealing with Iran.
  • Gen. Votel answered affirmatively. He stated that Middle Eastern and North African countries are interested in how the U.S. is planning to pursue its interests across the region. He noted how many of these countries are concerned that the U.S. would be shifting its focus away from the region and toward China. He stated that the U.S. must publicize and continue to articulate its continued interest in the Middle East and North Africa.
• Rep. Manning also asked Gen. Votel to indicate whether the U.S. could leverage the progress made from the Abraham Accords to promote relations between Israel and Palestine.
  • Gen. Votel remarked that progress made regarding the Abraham Accords could support efforts to promote relations between Israel and Palestine. He commented that while the Abraham Accords might not directly improve Israeli-Palestinian relations, he highlighted how the Accords provide a platform for dialogue and interaction. He stated that this platform would enable Israel and its Arab neighbors to address items of mutual interest.
• Rep. Manning acknowledged that her question period time had expired.

Rep. Jim Baird (R-IN):

• Rep. Baird stated that the witnesses had already addressed how the Abraham Accords would impact the Israel-Palestine relationship and yielded back his question period time.

Rep. Brad Sherman (D-CA):

• Rep. Sherman first stated that while he did not trust the current Iranian regime, he asserted that the U.S. must still engage in negotiations with Iran. He also noted how Israel’s diplomatic relations with Sudan and Morocco remain stalled. He then discussed how Saudi Arabia is now pushing for U.S. cooperation with their “supposedly peaceful” nuclear program. He commented that Saudi Arabia is not necessarily an ally to the U.S. or Israel and warned about the consequences of enabling Saudi Arabia to obtain nuclear weapons. He stated that the UAE had provided a “gold standard level of assurance” that it would not use their nuclear program for military purposes. He noted however that Saudi Arabia has been reluctant to provide the same level of assurance regarding their nuclear program. He asked Mr. Shapiro to indicate whether Saudi Arabia desires a peaceful nuclear program or desires nuclear weapons capabilities so that they can respond to Iran.
  • Mr. Shapiro noted how Saudi Arabia has repeatedly asserted that Iran constitutes their greatest threat. He attributed Saudi Arabia’s concerns regarding Iran to Iran’s nuclear program and Iran’s regional proxies that have perpetrated attacks on Saudi Arabia. He stated that Saudi Arabia’s concerns regarding Iran are justified. He noted how Saudi Arabia is attempting to obtain assurances from the U.S. so that Saudi Arabia can defend itself.
• Rep. Sherman interjected to ask Mr. Shapiro to explain why Saudi Arabia has been reluctant to provide assurances regarding their nuclear program.
  • Mr. Shapiro first noted how Saudi Arabia and the UAE have a rivalry and stated that this rivalry had increased over time. He commented that this rivalry might impact Saudi Arabia’s willingness to provide assurances regarding their nuclear program. He also noted how it had taken many years to get the UAE to agree to their assurances regarding their nuclear weapons program. He suggested that Saudi Arabia’s reluctance to provide the same level of assurances for its nuclear program could be a negotiating tactic.
• Rep. Sherman interjected to comment that diplomatic relationships can always be reversed and that governments can always be overthrown. He stated however that nuclear weapons technology will remain in place during such regime changes. He then noted how a UAE foreign official had asserted that the UAE had pursued the Abraham Accords to prevent Israeli annexation of Palestinian territories. He asked Mr. Shapiro to address how Israeli Prime Minister Benjamin Netanyahu’s recent comments about annexing part of the West Bank conflict with the letter and/or the spirit of the Abraham Accords.
  • Mr. Shapiro noted that the UAE had expected that Israel would abandon plans to annex parts of the West Bank when they had signed onto the Abraham Accords. He also indicated that Israel had made a commitment to not annex part of the West Bank. He expressed concerns over recent comments from Israeli government officials calling for a de facto annexation of parts of the West Bank. He commented that such annexation could jeopardize both the Abraham Accords and a two-state solution for the Israel-Palestine conflict. He partially attributed the relatively low popularity of the Abraham Accords to concerns over Israel’s treatment of Palestine. He concluded that the recent comments about annexing part of the West Bank from Israeli officials are counterproductive to peacemaking efforts.
• Rep. Sherman lastly commended the Biden administration for brokering a deal between Israel and Lebanon on maritime issues and the use of natural gas resources. He also highlighted how the Biden administration is negotiating a deal between Egypt, Israel, and Saudi Arabia regarding the islands in the Gulf of Aqaba.

Subcommittee Chairman Joe Wilson (R-SC):

• Chairman Wilson applauded the Biden administration for its efforts to support oil drilling in the Mediterranean Sea. He commented that these efforts would benefit both Lebanon and Israel. He noted how this oil is sent to Egypt for refining. He indicated that this refined oil is then sent to Italy to reduce the country’s dependence on Russian energy sources.

Rep. Brian Mast (R-FL):

• Rep. Mast first expressed his opposition to a two-state solution involving Israel and Palestine. He remarked that this approach would result in the establishment of a terrorist state in Palestine that would immediately face sanctions. He then discussed how there currently exists a de facto separation between the Gaza Strip and the West Bank. He stated that Hamas would most likely win elections if elections were held in both the Gaza Strip and the West Bank. He asked Gen. Votel to indicate whether the Abraham Accords are resulting in increased communication between the Gaza Strip and the West Bank.
  • Gen. Votel remarked that he did not know how the Abraham Accords are impacting communication between the Gaza Strip and the West Bank. He commented however that the Abraham Accords could be driving the Gaza Strip and the West Bank to work together on certain tangential issues.
• Rep. Mast asked the other witnesses to indicate whether the Abraham Accords are resulting in increased communication between the Gaza Strip and the West Bank.
  • Mr. Greenway stated that there does not appear to have occurred increased communication between the Gaza Strip and the West Bank following the signing of the Abraham Accords. He stated that Abraham Accords members believe that the Accords better position them to influence an eventual brokered settlement between Israel and Palestine. He also stated that Abraham Accords members have not fully taken advantage of their ability to set conditions for a brokered settlement between Israel and Palestine. He mentioned how the Abraham Accords include a fund that would enable member countries to contribute to infrastructure projects within the Palestinian territories. He highlighted how both Israel and Palestine had found this fund to be acceptable. He asserted that this fund could support infrastructure projects within the Palestinian territories while a broader peace deal is being brokered.
  • Mr. Shapiro expressed his disappointment with the attitude of the Palestinian Authority (PA) (which controls the Palestinian part of the West Bank) toward the Abraham Accords. He noted that the PA has called these Accords a “betrayal” and has boycotted the Accords. He also stated that Hamas (which controls the Gaza Strip) is a terrorist organization that rejects Israel’s existence and would therefore not be involved in the Abraham Accords. He then remarked that Palestinian people have a variety of views regarding the Abraham Accords. He noted how younger Palestinians and Palestinian businesspeople tend to be more receptive to joining the Abraham Accords. He expressed hope that the Arab states that have normalized relations with Israel could help to facilitate discussions between Israel and Palestine. He commented that such efforts could lower the barriers to an eventual resumption of peace negotiations between Israel and Palestine. He stated that these Arab states have more influence on this topic than they realize and that the U.S. should encourage these states to use their influence.

Rep. David Cicilline (D-RI):

• Rep. Cicilline expressed his interest in working to build upon and expand the Abraham Accords and stated that the Israeli-Palestinian conflict serves as one of the main impediments to expanding the Accords. He noted how Saudi Arabia, Kuwait, Qatar, and Oman have expressed interest in stabilizing their relations with Israel so long as Israel and Palestine made progress in achieving a peace deal. He asked Mr. Shapiro to identify actions that the U.S. Department of State could take to educate the Palestinians about the benefits of the Abraham Accords.
  • Mr. Shapiro mentioned how the Abraham Accords had enabled solar energy projects to support desalinated water exchanges between Jordan and Israel and indicated the UAE is financing these projects. He stated that these types of projects could and should include the Palestinians given their geographic proximity and similar needs. He remarked that the UAE could convene Israelis and Palestinians to engage in mutually beneficial development and education projects and initiatives. He suggested that these types of projects and initiatives could demonstrate the benefits associated with collaboration, which could make the Palestinians less resistant to pursuing a broader peace deal with Israel over time.
• Rep. Cicilline then mentioned how there had occurred a recent uptick in violence in the West Bank. He asked the witnesses to indicate whether Abraham Accords countries could be helpful in terms of responding to this violence and brokering peace agreements.
  • Mr. Shapiro noted how the UAE is a member of the United Nations (UN) Security Council and mentioned how the UAE had recently brought complaints on behalf of other Arab countries to the UN Security Council regarding Israel’s actions in the West Bank. He criticized the UAE for not bringing complaints about Palestinian terrorist attacks against Israelis and the PA’s payments to terrorists. He remarked however that the UAE could now play a key role in brokering agreements between the Israelis and the Palestinians given its partnerships with both groups. He also stated that the UAE should work with the U.S. on these peacemaking efforts.
  • Gen. Votel expressed agreement with Mr. Shapiro’s comments. He remarked that the maturing of the Abraham Accords relationships would facilitate better communications. He commented that this process would take time and would support long-term peacebuilding efforts.

Rep. Rich McCormick (R-GA):

• Rep. McCormick expressed interest in how the I2U2 Group (which consists of India, Israel, the UAE, and the U.S.) is sharing information and working on joint-economic projects. He also expressed interest in working to bring Indonesia (which he noted is a majority-Muslim country) into multilateral agreements (such as the Abraham Accords). He asked Gen. Votel to opine on the prospects of expanding the geographic scope of the Abraham Accords to include southeast Asian countries.
  • Gen. Votel expressed support for expanding the geographic scope of the Abraham Accords. He remarked that multilateral agreements are beneficial because they promote dialogue among partners, which reduces the risks of problems arising. He stated however that the Abraham Accords should prioritize efforts to expand within the Middle East before it seeks to broaden its geographic scope.
• Rep. McCormick expressed agreement with Gen. Votel’s response. He then noted how Azerbaijan has the second largest Shiite population in the world. He discussed how Russia’s involvement in its war with Ukraine has led Russia to largely withdraw from the South Caucasus region. He commented that this development provides an opportunity for engaging Azerbaijan in regional agreements. He asked Mr. Greenway to discuss the benefits and drawbacks of engaging Azerbaijan in regional agreements. He also asked Mr. Greenway to provide recommendations for how Azerbaijan could be quickly engaged in these agreements while Russia remains distracted with their war with Ukraine.
  • Mr. Greenway indicated that Azerbaijan already maintains a strong relationship with Israel. He stated that Azerbaijan’s membership in the Abraham Accords would therefore be more symbolic than substantive. He then remarked that the U.S. now has an opportunity to strengthen its relations with Central Asian states at the expense of Russia and China. He commented that such strengthened relations would improve the U.S.’s security flexibility and economic prosperity. He added that such engagement would provide increased economic prosperity for the broader region. He stated that expanding the geographic scope of regional agreements to Central Asia would result in greater economic benefits, which would make the agreements more enduring. He concluded by expressing his support for expanding the geographical scope of regional agreements within the Middle East and North Africa.
• Rep. McCormick expressed agreement with Mr. Greenway’s response and highlighted how Azerbaijan and Israel have worked together on energy issues. He then asked Mr. Shapiro to explain his assertion that the relationship between Israel and Palestine is deteriorating. He commented that the relationship between Israel and Palestine has never been good.
  • Mr. Shapiro described the relationship between Israel and Palestine as cyclical. He noted how there had occurred a recent spike in Palestinian terrorist attacks against Israeli citizens. He also mentioned how the Israeli responses to these terrorist attacks have sometimes resulted in civilian casualties.
• Rep. McCormick interjected to state that Iran is driving much of these Palestinian terrorist attacks against Israel. He asked Mr. Shapiro to indicate whether the U.S. could neutralize Iran in a way that would benefit the Israeli-Palestinian peace process.
  • Mr. Shapiro remarked that the best opportunity for addressing Palestinian extremism would be to improve the economic and security conditions in Palestine and to demonstrate that there exists a viable diplomatic pathway for a negotiated peace agreement.

Rep. Tim Burchett (R-TN):

• Rep. Burchett asked Mr. Shapiro to address how the Abraham Accords could help to combat antisemitism abroad.
  • Mr. Shapiro mentioned how the N7 Initiative had hosted a December 2022 conference on education and coexistence in Morocco that involved eight countries (which were Israel and seven Arab countries). He noted how the conference had included Arab activists from Morocco, the UAE, and Bahrain that are working to educate their own populations against long standing antisemitic narratives. He remarked that there are additional initiatives underway to combat antisemitism abroad and highlighted how Holocaust education in the Middle East and North Africa is increasing. He stated that the Abraham Accords have made these efforts to combat antisemitism possible.
• Rep. Burchett asked Mr. Shapiro to indicate whether the leaders of certain countries often perpetuate religious and cultural tensions to divide their potential oppositions and to remain in power.
  • Mr. Shapiro answered affirmatively.
• Rep. Burchett then asked Mr. Greenway to indicate whether Saudi Arabia is interested in normalizing relations with Israel.
  • Mr. Greenway testified that the U.S. has had several conversations with Saudi Arabia in recent years. He stated that public discussions about negotiations tend to increase the negotiating leverage of one or more parties and asserted that these public discussions could become detrimental. He noted that this dynamic explains why the Abraham Accords had not been announced until the negotiations had been concluded. He remarked that the U.S.’s discussions with Saudi Arabia have focused more on U.S.-Saudi Arabia relations than on Israel-Saudi-Arabia relations. He stated that it would be in the best interests of the U.S., Israel, and Saudi Arabia to pursue normalized relations between Israel and Saudi Arabia. He commented however that the relationship between Israel and Saudi Arabia would need to be repaired before the two countries could engage in viable diplomatic negotiations. He remarked that the U.S. should work to integrate its partners and allies within the Middle East and commented that such integration could help to address legitimate security concerns. He then discussed how Saudi Arabia is seeking to pursue its own nuclear program and commented that Saudi Arabia believes that it should not be subject to different nuclear development standards than Iran. He remarked that Saudi Arabia would likely be comfortable with making similar types of assurances for their nuclear program as the UAE had made so long as the U.S. does not enable Iran to pursue a wholesale civil and military nuclear program.
• Rep. Burchett asked Mr. Greenway to indicate whether there exist additional measures that can be taken to support peace talks between Israel and Saudi Arabia.
  • Mr. Greenway answered affirmatively. He asserted that Iran constitutes the principal threat to peace and stability in the Middle East and stated that addressing this threat would attract partners.
• Rep. Burchett asked Mr. Greenway to discuss how expanding the Abraham Accords would benefit the U.S.
  • Mr. Greenway remarked that expanding the Abraham Accords would constrain China’s global ambitions, secure global markets, and provide stability within the Middle East and North Africa. He commented that the U.S. had historically needed to make large expenditures to address regional instability within the Middle East and North Africa.

Rep. Mike Lawler (R-NY):

• Rep. Lawler mentioned how he had introduced the bipartisan Special Envoy for the Abraham Accords Act, which would create a Special Envoy for the Abraham Accords. He asked Mr. Shapiro to explain why a Special Envoy for the Abraham Accords would be an effective tool for ensuring the stability and long-term success of the Abraham Accords.
  • Mr. Shapiro remarked that the establishment of a Special Envoy for the Abraham Accords position would signal the U.S.’s commitment to the Abraham Accords to current and prospective members, as well as other countries. He also stated that the Special Envoy position could help to coordinate support for the Abraham Accords from other countries, U.S. government departments and agencies, and external non-government stakeholders.
• Rep. Lawler noted how Israel, Bahrain, the UAE, and Morocco had entered into the Abraham Accords in 2020. He commented however that the progress of the Abraham Accords had slowed down in recent years. He asked Mr. Shapiro to indicate whether the establishment of a Special Envoy for the Abraham Accords position (or a similar type of position) would support the progress of the Abraham Accords. He highlighted how other countries are now permitting Israeli airlines to use their airspace, which he called a promising development.
  • Mr. Shapiro stated that the establishment of a Special Envoy for the Abraham Accords position would help to support the progress of the Abraham Accords. He applauded the Biden administration for its support of the Abraham Accords and highlighted the administration’s work on the Negev Summit and the Negev Forum. He also noted the Biden administration’s support for efforts to open airspace to Israeli airlines and the I2U2 Group. He remarked that the establishment of a Special Envoy for the Abraham Accords position would further support cooperation amongst North African and Middle Eastern countries.
• Rep. Lawler asked Mr. Shapiro to identify additional countries that would make good additions to the Abraham Accords.
  • Mr. Shapiro remarked that Saudi Arabia would constitute the most desired addition to the Abraham Accords. He acknowledged however that securing Saudi Arabia’s addition into the Abraham Accords would be very difficult. He listed Oman, Mauritania, Qatar, and Kuwait are all possible additions to the Abraham Accords. He further listed Indonesia, Somalia, Niger, and Malaysia as possible additions to the Abraham Accords that are outside of the Middle East and North Africa.
• Rep. Lawler then asked Mr. Shapiro to address how the Biden administration’s approach toward Iran and their efforts to restart the Iran Nuclear Deal impact the Abraham Accords and the potential for other countries (like Saudi Arabia) to engage with Israel.
  • Mr. Shapiro remarked that Israel and many Arab partners disagree with the U.S.’s decision to pursue a nuclear deal with Iran. He asserted however that the U.S. could not re-enter the Iran nuclear deal at this point given recent developments (including Iran’s suppression of domestic protests and support for Russia).
• Rep. Lawler interjected to ask Mr. Shapiro to indicate whether the U.S. should re-enter the Iran nuclear deal. 
  • Mr. Shapiro remarked that the U.S. could not re-enter the Iran nuclear deal if it wanted to at this point. He stated that there is broad agreement amongst the U.S., Israel, and Arab partners that deterrence would play a central role in foreign policy toward Iran moving forward. He remarked that Iran’s recent behavior creates an opportunity to create a more unified U.S. and regional approach to respond to Iran.

Rep. Brad Schneider (D-IL):

• Rep. Schneider mentioned how he is one of the co-founders and co-chairs of the bipartisan House Abraham Accords Caucus. He expressed optimism regarding the potential benefits of the Abraham Accords and commented that the U.S. should be proud of its role as a facilitator of the Abraham Accords. He stated that the U.S. must work to both reinforce the existing relationships amongst Abraham Accords member countries and expand the Abraham Accords. He stated that these expansion efforts would involve bringing more countries into the Abraham Accords and reaching out to other regions (e.g., Europe and Asia) to reinforce the legitimacy of the Accords. He then remarked that the U.S. should work to demonstrate the value of the Abraham Accords to both government decision makers and average people. He commented that this work would also be key to demonstrating the U.S.’s commitment to the Middle East and North Africa. He asked the witnesses to address how the U.S. could work to ensure that the region’s residents could understand the value of the Abraham Accords and the U.S.’s commitment to the region.
  • Mr. Shapiro discussed how the Negev Forum constitutes an effort to develop projects and proposals that will benefit the public. He noted that these projects encompass a broad range of fields, including energy, health, water, and food. He acknowledged however that the Negev Forum is a consensus organization that operates very slowly. He indicated that the Negev Forum has thus implemented few projects to date and indicated that these projects have tended to involve small sets of countries. He stated that the N7 Initiative is working to supplement the Negev Forum’s development of regional projects. He remarked that these regional efforts would require funding from governments, the private sector, and foundations. He asserted that policymakers should focus on these types of regional projects moving forward.
  • Gen. Votel recommended that the U.S. promote people-to-people exchanges across the Middle East and North Africa. He stated that these exchanges could be achieved through tourism, education exchange programs, business meetings, health care efforts, and technology development. He commented that these exchanges would enable the citizens of the Abraham Accords countries to directly observe the benefits of the Accords. He also remarked that the U.S. should emphasize how the Abraham Accords could protect member countries from existential threats.
  • Mr. Greenway noted how there have been over 260 agreements between Abraham Accords member countries. He testified that the Abraham Accords Peace Institute spends most of its time working to connect government agencies, public institutions, and private institutions to execute these agreements. He highlighted how the Abraham Accords Peace Institute has worked to implement academic exchanges, athletic events, agriculture initiatives, and trade and infrastructure initiatives among Abraham Accords member countries. He also mentioned how the Abraham Accords Peace Institute had worked diligently to build caucuses in the United Kingdom (UK), France, Germany, the European Union (EU), and Hungary that support the Abraham Accords. He expressed hope that additional pro-Abraham Accords caucuses would form in other countries (including in Asian countries). He remarked that the implementation of existing agreements would help to reinforce the relationships amongst Abraham Accords member countries, demonstrate the benefits of the Accords to the region’s citizens, and encourage more countries to join the Accords.
• Rep. Schneider expressed agreement with the responses to his question. He also mentioned how the House Abraham Accords Caucus has met with all of the ambassadors to the U.S. of the Abraham Accords member countries. 

Subcommittee Chairman Joe Wilson (R-SC):

• Chairman Wilson remarked that the normalization of relations between Israel and the UAE, Bahrain, Morocco, and Sudan was an historic accomplishment during the Trump administration. He stated that this normalization of relations had benefited all of the Abraham Accords member countries and the U.S. He asked Mr. Shapiro to identify any barriers that might be preventing more Arab countries from joining the Abraham Accords. He also asked Mr. Shapiro to discuss the benefits that Abraham Accords member countries had realized since normalizing relations.
  • Mr. Shapiro noted that people-to-people exchanges (including educational exchanges) are already occurring within Abraham Accords member countries and contended that these opportunities could be significantly expanded. He mentioned how the UAE and Israel maintain a free trade agreement and commented that there had occurred a “dramatic” increase in bilateral trade between the two countries. He added that Israel and Bahrain are currently negotiating their own free trade agreement. He further discussed how the Abraham Accords member countries had received benefits from the U.S. (such as weapons systems and recognition of certain territories) as a reward for participating in the Accords. He then remarked that other countries are looking at these benefits and are seeking to identify times where they could derive maximum benefits from the negotiation of normalized relations with Israel. He also stated that these countries are looking to identify times when the pursuit of normalized relations with Israel would be politically feasible. He cautioned that tensions between Israelis and Palestinians could deter additional countries from joining the Abraham Accords.
• Chairman Wilson then applauded the recent agreement between Israel and Lebanon and commented that this agreement would enable the offshore drilling of oil and gas in an environmentally sound fashion. He stated that this agreement would drive economic stability for Lebanon. He also noted how the oil and gas derived from this agreement would be refined in Egypt and could be shipped to Italy to offset the country’s energy pressures stemming from Russia’s invasion of Ukraine. He asked Mr. Greenway to indicate whether there exist similar types of opportunities for economic cooperation within the Middle East and North Africa.
  • Mr. Greenway remarked that there exist more opportunities for cooperation amongst Middle Eastern and North African countries on energy projects and commented that these projects could help to offset and replace the loss of Russian gas. He noted how Russia had previously met about 43 percent of Europe’s energy requirements and indicated that this loss has not yet been replaced. He stated that while the U.S., Norway, and other countries have taken actions to help address this loss in Russian energy, he remarked that Europe currently does not have a mid-term and long-term plan in place for addressing its energy needs. He reiterated how energy projects involving Abraham Accords member countries could help to replace Europe’s loss of Russian gas and commented that the U.S. could support these projects. He noted how the loss of access to Russian energy resources made these types of energy projects economically feasible. He stated that these energy projects will generate large amounts of revenue and strategically align U.S. partners to one another.
• Chairman Wilson commented that much of the offshore drilling that is occurring within the Middle East and North Africa could support energy pipelines to Greece, Bulgaria, Romania, and the Western Balkans countries.

Rep. Kathy Manning (D-NC):

• Rep. Manning expressed concerns over the current situations in Lebanon and Syria. She stated that Lebanon is on the verge of becoming a failed state and that Syria is a source of “countless” problems within the Middle East and North Africa. She asked the witnesses to indicate whether the Abraham Accords member countries could work together to positively impact Lebanon and Syria.
  • Gen. Votel remarked that the security and defense cooperation between Israel and other countries in the region would support efforts to combat Iran’s ability to move their lethal resources closer to Israel. He mentioned how CENTCOM is currently deploying sensors and drones and employing artificial intelligence (AI) systems to monitor what is happening on the Persian Gulf. He commented that this monitoring enables the U.S. and its partners to better control the maritime movement of lethal aid and commented that this monitoring could also be applied to the airspace. He stated that a united front against Iran could reduce Iran’s ability to perpetrate threats and attacks against Syria, Israel and other countries.
• Rep. Manning asked the witnesses to provide recommendations to Congress for supporting and fostering the expansion of the Abraham Accords.
  • Mr. Shapiro first remarked that the establishment of bipartisan Abraham Accords Caucuses demonstrates that the Abraham Accords deserve sustained investment and support and called these caucuses very important. He also applauded the Abraham Accords Caucuses for their visits to Abraham Accords member countries and stated that these visits provide an opportunity to convey the benefits of the Accords. He then remarked that work on the Abraham Accords should not be limited to diplomatic and military agencies. He noted how most federal departments and agencies have international affairs programs and stated that these departments and agencies could contribute to the Abraham Accords. He suggested that the Office of the U.S. Trade Representative (USTR) could offer its expertise on trade negotiations, the U.S. Holocaust Memorial Museum could support curriculum development efforts regarding Holocaust education, and the U.S. Centers for Disease Control and Prevention (CDC) could support pandemic prevention efforts. He stated that Congress should work to support and fund these programs to promote the Abraham Accords.
  • Mr. Greenway reiterated his call for the U.S. to promote cooperation on energy projects in the Middle East and North Africa. He then discussed how Congress has long allocated money toward Middle East peace efforts and suggested that Congress ensure that these existing funds could be applied to the Abraham Accords. He also stated that the U.S. should provide capabilities to its partners. He commented that the provision of such capabilities would enable the partners to defend themselves more appropriately and reduce the burden on the U.S. He remarked that fostering trade and energy relationships amongst the U.S.’s partners will force the partners to work together, which will lead the partners to become more invested in regional security as a means of defending their trade.

Rep. Brad Schneider (D-IL):

• Rep. Schneider asked the witnesses to provide their thoughts on what the U.S. should be doing to demonstrate its commitment and leadership in the Middle East and North Africa. He expressed particular interest in efforts to coordinate defense strategies and share information across systems.
  • Gen. Votel remarked that the U.S. military has “extraordinary expertise” in terms of coordinating defense strategies and sharing information across systems. He stated that the U.S. could help its partners to build better shared awareness systems, which would enable U.S. partners to become more resilient and self-reliant. He also remarked that the U.S. could support security cooperation efforts. He commented that candid discussions about their needed capabilities are “extraordinarily important.” He lastly stated that the U.S. could play a convening role in the Middle East and commented that the U.S. has significant influence and credibility in the region.
  • Mr. Greenway remarked that there needs to exist a common agreement regarding how to approach the threat posed by Iran. He commented that the absence of this common agreement would make it difficult to make progress across several fronts, including security cooperation. He stated that Iran poses an existential threat to the Middle East and North Africa and that this threat supersedes any concerns regarding the Israeli-Palestinian situation. He asserted that U.S. leadership is needed to respond to the threat posed by Iran and commented that the U.S. now has a prime opportunity to play a leadership role in the region. He then stated that the U.S.’s support for Israel is “critically important” at the current time. He commented that the rest of the region could not be more pro-Israel than the U.S. He further discussed the importance of building support abroad for the Abraham Accords and stated that this building of support would provide the Abraham Accords with additional leverage. He lastly remarked that the U.S. had not contributed much to the Abraham Accords. He suggested that the U.S. consider redirecting some of its existing resources to the Abraham Accords.
• Rep. Schneider then stated that a two-state solution to the Israel-Palestine conflict is not a viable solution within the short-term. He commented that the U.S. could not recognize a Palestinian state at the current time given how this state would be a terrorist state. He then remarked that the U.S. must make it clear to Iran that it will not be permitted to obtain a nuclear weapon. He then asked Mr. Shapiro to indicate what the U.S. should be doing to demonstrate its commitment to and leadership in the Middle East and North Africa.
  • Mr. Shapiro remarked that the narrative that the U.S. would withdraw or reduce its focus on the Middle East and North Africa is exaggerated. He acknowledged that while the U.S. is not looking to pursue new major military entanglements in the region, he stated that the U.S. remains a robust presence in the region. He applauded President Biden’s decision to travel to the region during the summer of 2022 and stated that this trip signaled the U.S.’s commitment to the region. He also remarked that the U.S. should make clear its expectations for the region regarding their actions related to China, Russia, and oil markets. He lastly discussed how the deterioration of relations between Israelis and Palestinians could negatively impact other countries, including Jordan, Egypt, and prospective Abraham Accords member countries. He stated that the U.S. should demonstrate its interest in working to address the Israel-Palestine conflict. He commented that this demonstrated interest will buttress the U.S.’s leadership capability within the region.

Subcommittee Chairman Joe Wilson (R-SC):

• Chairman Wilson remarked that the U.S. could not permit Iran to obtain nuclear weapons. He stated that a nuclear-armed Iran would pose a significant threat to world stability. He commented that Congress would work in a bipartisan fashion to block Iran from obtaining nuclear weapons.