Aspects of the Formation of

Israel’s National Security Doctrine

Kim Bar
2024

Dado Center for Interdisciplinary Military Studies

2 Aspects of the Formation of Israel's National Security Doctrine | October 2024

Aspects of the Formation of Israel's National

Security Doctrine

Dado Center for Interdisciplinary Military Studies

Head of the Dado Center: Brigadier General Dr. Eyal Pecht

Author: Major Kim Bar
© All rights reserved to the Dado Center
Printed in Israel (Hebrew Edition), by the Ministry of Defense Press
Av 5784 - August 2024
The digital Hebrew edition was published on the Dado Center website in September
2024
English Version – October 2024

No part of this material may be reproduced, copied, photographed, recorded,

translated, stored in a database, broadcast, or transmitted by any electronic, optical,
mechanical, or other means, without explicit permission from the publisher. Any
commercial use of the material in this book is strictly prohibited without detailed
authorization from the publisher.

For inquiries: Kim.Bar@idf.il

 Aspects of the Formation of Israel's National Security Doctrine | October 2024 3

Introduction

The development of the current conflict necessitates a deep examination of the

foundations and principles of Israel's national security. The military components of the
national security concept — Deterrence, Early Warning, Operational Decision, and
Defense — are present in our daily operations, from political directives in official
documents to patterns of force deployment.
In order to critically analyze these components, including a discussion of whether and
how they contribute to our current security and political needs, we must first rely on
a solid theoretical foundation. Through a comprehensive review of primary
documents and the extensive literature written on the subject over the past decades,
this document, authored by Major Kim Bar from the Dado Center, presents several
surprising insights. Among other points, the document indicates that the familiar
military components reflect military-security thinking from the 1980s and were not
originally formulated as foundational elements of the security concept. Recognizing
their relative modernity and that they are the result of a unique historical context
provides us with greater flexibility in questioning their relevance. If the characteristics
of Israel’s security environment—and Israel itself—have significantly changed since
then, should we not also question the validity and potential contribution of these
components to our current security concept?
This document is also of great importance for readers not directly involved in national
security discussions at this time. The knowledge contained in it, in our view, is an
integral part of the theoretical toolkit for every officer in the Israel Defense Forces,
especially considering the events of October 7, 2023, and the "Swords of Iron" war.
Wishing you a productive reading,

BG Dr. Eyal Pecht

Head of the Dado Center
for Interdisciplinary
Military Studies
IDF Operations Directorate (J3)
4 Aspects of the Formation of Israel's National Security Doctrine | October 2024

Table of Contents

Introduction …............................................................................................................. 3

The Development of Israel's Security Concept ..................................................... 5

Pre-Statehood Period – Until 1948 ....................................................................... 10

First Period – 1948–1967 – Establishment and Stabilization of the State .... 12

Second Period – 1967–1985 – Expansion of Borders and Creation of Strategic

Depth ................................................................................................ 15

Third Period – 1985–2000 – The Shift to Different Warfare – Terror

Organizations – The Threatened Homefront Becomes an
Additional Front .............................................................................. 18

Fourth Period – 2000–2023 – Emergence of the Radical Axis and Global Multi-
Polar Organization (GPC) .............................................................. 21

Bibliography (Alphabetical Order) ........................................................................ 26

About the Authors .................................................................................................... 29

 Aspects of the Formation of Israel's National Security Doctrine | October 2024 5

The Development of Israel's Security Concept

1. Israel's security concept is an idea that has developed over many years, with parts
of it being formulated during those years. It reflects how the State of Israel and
the Jewish people articulate the foundations of national security for the state’s
existence, prosperity, and growth.
2. The security concept that is generally relied upon today is based on the one
presented by the Meridor Committee in 2006, with its various developments. At
its core is the "security triangle," which includes Deterrence, Early Warning, and
Operational Decision, with the addition of Civil and Military Defense. Since then,
there have been attempts to validate it by several entities (the National Security
Council, Chiefs of Staff), and they have also addressed its military implications,
including IDF’s strategy and General Staff doctrines).
3. Considering "Operation Swords of Iron" and the recognition that a reassessment
of the security concept is necessary, alongside the creation of a comprehensive
document that addresses Israel's security issues, a process of reflection has begun
at the Dado Center and the Strategic Division. For this purpose, the development
of the security concept over the years has been examined, starting from before
the establishment of the state to the present day.
4. Many of the issues that were on the agenda during the early days of security
concept thinking have returned to prominence today, requiring in-depth
consideration and attention from both the political and security leadership.
5. This document is based on primary documents of the various security concepts,
on documents developed by the IDF following these concepts, and on secondary
works, such as papers written on the subject both within and outside the IDF.
6. The document outlines the ideological development of Israel’s written and
revealed security concept over five periods. The division into periods is based on
strategic shifts and the characteristics of each period:
A. Preliminary Period – Until 1948 – Pre-Statehood
B. First Period – 1948–1967 – Establishment and Stabilization of the State
6 Aspects of the Formation of Israel's National Security Doctrine | October 2024

C. Second Period – 1967–1985 – Expansion of Borders and Creation of Physical

and Strategic Depth
D. Third Period – 1985–2000 – Shift to Different Warfare – Terror Organizations
– The Threatened Homefront Becomes an Additional Front
E. Fourth Period – 2000–2023 – Emergence of the Radical Axis and Great Power
Competition (GPC)
7. To ensure continuity and enable comparison between these periods, I will examine
the security concept according to the following five categories, which appear to
varying degrees in the different committee documents:
A. Strategic Context – The circumstances under which the concept or associated
documents were written.
B. Initiators of the Concept – The key figures who led the process and the actual
writing.
C. Approval of the Concept – The entities that approved the written concept or
its related documents.
D. Central Principles of the Concept – The main ideas and concepts expressed in
the division of major topics. This division is based on the author’s classification
according to topics appearing in the committee documents or those emerging
from engagement with these issues, such as: maintaining a Jewish majority and
strengthening settlement; economic self-reliance; international cooperation
and assistance; education and values; enhancing qualitative superiority; the
defense system; the IDF.
E. Military Implications – The significance of these issues for the IDF.
8. Key Points Emerging from the Development of the Concept:
A. The security concept is essentially an ideological development of various
thoughts and conceptual documents written by the political leadership and
senior military officials. The factors shaping the security concept are the
strategic context and the circumstances of the period, which can be
characterized by several categories that unify similar ideas. For instance,
security issues dominate all concepts, while the focus on topics such as
maintaining a Jewish majority and settlement shifts between periods.
 Aspects of the Formation of Israel's National Security Doctrine | October 2024 7

B. Tere is a distinction between the security concept (often referred to as the

national security concept) and the military strategy for its implementation.
However, there is a noticeable gap between the security concept and military
strategy—namely, the absence of a coherent security strategy derived from
the security concept. There is no structured process by which a unified security
strategy is developed for all relevant entities, guided by national logic.
C. An examination of the development of the security concept refutes certain
assumptions commonly held today:
1) The first assumption is the issue of the "security triangle"—Deterrence,
Early Warning, and Operational Decision—which is often believed to have
originated in Ben-Gurion's thinking. A review of foundational documents
shows that these three ideas are not explicitly stated but only hinted at,
and they only begin to appear in political and military thought towards the
late 1960s. While elements of this idea can be found in Ben-Gurion's
writings, they are not explicitly stated, and it is clear that the concept is not
limited to these three principles.
2) It is commonly believed that Jabotinsky’s “Iron Wall” concept reflects the
idea of deterrence that appears in later security concepts. However,
deterrence is not mentioned, either by name or as a concept, in
Jabotinsky's writings or in other writings from that period (nor in the IDF
until around the 1960s). The “Iron Wall” refers more to the despair of the
opposing side and their understanding that there is no point in continuing
the fight against Israel because it is stable and resilient over time, and will
not break even under repeated attacks. This is largely defensive attrition,
rather than a deterrent threat through the use of force.
D. Once the "Security Triangle" concept became established around the 1980s, it
became the reference point for all other concepts, with an emphasis on
military strategies and doctrines. This is reflected in military documents issued
in its wake, particularly in multi-year plans.
E. The only component that remained stable throughout the various shifts in
security concepts over the years is Defense. It appears in Ben-Gurion's thinking
and has been a necessary and fundamental element of Israel's resilience
8 Aspects of the Formation of Israel's National Security Doctrine | October 2024

against its enemies. It serves as a foundation for all other principles, and when
it fails, the other security components must act. Its logic is also tied to the "Iron
Wall" concept, as steadfastness and defense of the settlements are part of the
rationale behind the futility of the enemy's continued fighting. Despite its
centrality, defense is not included in the "Security Triangle" and, to some
extent, has been marginalized in military thought on the subject.
F. Elements that were central to Ben-Gurion's concept, such as values,
maintaining a Jewish majority, and strengthening settlement, are largely
absent from later concepts. The security concept focuses heavily on its military
components, especially when addressed exclusively by the security-military
echelon. When the political echelon or its representatives (e.g., the Meridor
Committee) address the issue, they return to broader topics.
G. The political echelon’s involvement in the security concept decreased during
the second period, increased in the third period, primarily by defense
ministers, and in the fourth period, where we are today, prime ministers have
returned to engage with it. However, the only security concept approved by
the government is the comprehensive one by Prime Minister David Ben-Gurion
in 1953, known as the 18-point document.
H. The military's interpretation of the security concept has been narrowed to the
military components, but the full concept is broader and includes topics with
national and social impacts. The military must draw conclusions from these
topics since it is both influenced by and influences them. The discussions in the
IDF regarding the military components affect, de facto, force-building
processes and their implementation, making them crucial to the broader
understanding of the overall security concept.
I. In the absence of clear guidance from the political leadership, the military
creates its own framework and compass for action. These are not necessarily
aligned with existing political objectives, which themselves are often
undefined. Over the years, several strategies have been written to implement
the logic of the security concept (by Chiefs of Staff such as Lt. General Shaul
Mofaz, Lt. General Gadi Eisenkot, and others), and these strategies sometimes
became conceptual frameworks in their own right.
 Aspects of the Formation of Israel's National Security Doctrine | October 2024 9

J. There is a written concept, as expressed in documents approved at various

levels and in draft documents formulated over the years, but there is also a
visible concept, reflecting processes that occur in practice. These processes
align with different ideas in the concept, are influenced by it, and in turn,
influence it. In other words, even without an official written concept,
documents are created that are shaped by its logic.
K. The only concept officially approved by the government over the years is Ben-
Gurion’s concept. All other concepts, if approved, were sanctioned at lower
levels, either by the defense minister or solely by the military hierarchy.

Wishing you a productive reading,

Major Kim Bar

Head of Systemic
Knowledge Development
Dado Center for Interdisciplinary
Military Studies
IDF Operations Directorate (J3)
10 Aspects of the Formation of Israel's National Security Doctrine | October 2024

Pre-Statehood Period – Until 1948

1. Strategic Context:
The pre-state period was marked by an ongoing conflict between Jewish and Arab
residents of the land, with numerous violent uprisings by Arabs against Jews. The
Jewish people did not have a state of their own, and the Holocaust was unfolding
in Europe, with the Jewish community in Israel hearing about it and later
witnessing the arrival of survivors. Jewish settlement in the land consisted of
settlement blocs, urban and rural settlements, and pioneering frontier
communities.
2. Initiators of the Concept:
During this period, there was no formal writing of a security concept, nor was
there a specific direction for it. Primarily, there were ideas and philosophies from
leaders of the Jewish community, the most prominent of whom was Ze'ev
Jabotinsky. Moshe Beilinson, who also wrote on the subject, is another well-
known figure.
3. Core Principles of the Concept:
Steadfastness in the face of the Arab enemy, refusal to relinquish land or
settlement, and the defense of the Jewish community.
4. Notes:
Jabotinsky's writings are often associated with the concept of deterrence.
However, the term "Iron Wall" more accurately refers to influencing the other side
not merely through a credible threat (the goal of deterrence) but by making their
attack appear futile—both in terms of the unbreakable Jewish spirit and the Jewish
people's willingness to fight to the last drop of blood in self-defense. While
deterrence could be one way to achieve this, it is not explicitly mentioned.
 Aspects of the Formation of Israel's National Security Doctrine | October 2024 11

5. Selected Quotes:
"But a voluntary agreement with them is impossible as long as the Arabs have
even a glimmer of hope of getting rid of us. They will not abandon this hope in
exchange for sweet words, nor for nutritious sandwiches. And this is precisely
because they are not a rabble, but a living people, albeit a backward one. A
group of living people makes concessions on critical, existential questions only
when they have no hope left, when not even a crack is visible in the iron wall."
—Ze'ev Jabotinsky, On the Iron Wall (We and the Arabs), 1923

"How long [will we fight]? Until Israel’s strength in its land dooms any enemy
attack to failure, wherever it may come from; until the most enthusiastic and
boldest among all enemy camps, wherever they may be, knows that there is no
means of breaking Israel's strength in its land, for the necessity of life and the
truth of life are with it, and there is no other choice but to make peace with it.
This is the meaning of the struggle."
—Moshe Beilinson, The Meaning of the Struggle, 1936
12 Aspects of the Formation of Israel's National Security Doctrine | October 2024

First Period – 1948–1967 – Establishment and

Stabilization of the State

1. Strategic Context:
The documents addressing the Israel Defense Forces' (IDF) security concept during
the first 20 years of Israel's existence were written against the backdrop of the
War of Independence and other military confrontations, such as Operation
Kadesh, which posed existential threats. Israel was politically and militarily
isolated, fighting on multiple fronts without early warning systems or strategic
depth. This period was marked by a persistent threat to the Zionist idea and the
civilian Homefront, with wars exacting a heavy toll in human lives and resources.
The state partially relied on powers like France, particularly regarding military
buildup. This era also coincided with the global East-West confrontation during the
Cold War, with the Middle East and Israel becoming another frontline. Moreover,
there was an emerging understanding that the military alone could not ensure
national security, necessitating an integrated approach.
2. Initiators of the Concept:
In this early period, the political leadership was deeply engaged in security issues,
with extensive writings accompanying this focus. David Ben-Gurion, as both Prime
Minister and Minister of Defense, authored several foundational documents on
Israel’s national security, including: "Problems of Security" (February 3, 1948), "The
Defense Service Law" (August 15, 1949), "Matters of Security" (June 20, 1950), "On
the Problem of Security" (1950), "Problems of Society and Security" (March 27,
1953), and perhaps the most influential document, "Army and State" (also known
as the "18 Points Document"), which was presented and approved in a
government meeting on October 19, 1953. Other public figures, such as Yigal Allon,
contributed to the discourse, with his book "A Curtain of Sand."
b. On the military side, IDF Chief of Staff Yigal Yadin and, under his direction, Yuval
Ne'eman, Head of the Planning Division, were key figures in shaping the security
concept. Their ideas were translated into operational orders and subsequently
 Aspects of the Formation of Israel's National Security Doctrine | October 2024 13

formalized in what were known as the Nevo and Lavi files, as well as the IDF’s
security doctrine, all prepared for the military echelon.
3. Approval of the Concept:
As mentioned, Ben-Gurion's concept was officially approved by the government as
part of discussions on the relationship between the army and the state. It was later
validated during the transition of the prime-ministership from Ben-Gurion to Levi
Eshkol in 1963. The military documents based on this concept were approved by
Defense Minister Ben-Gurion until the end of his tenure.
4. Core Principles of the Concept:
A. Ben-Gurion’s writings addressed a wide range of national security-related
topics, which can be divided into subcategories that recur over time, though
their components have evolved:
B. Jewish Majority and Strengthening Settlement: Significant immigration to
Israel; balanced distribution of the population across the country;
strengthening border regions (especially the Negev – the south part of Israel)
and border settlements; creating interconnected settlement blocs.
b. Economy and Self-Reliance: Independence from external food supplies and
a preference for domestic production of armaments; economic self-
sufficiency; a strong industrial base.
C. International Cooperation and Assistance: Expanding trade and
transportation ties, including sea and air routes; foreign policy centered on
peace and fostering friendly relations with all nations; reliance on self-
sufficiency while strengthening ties with major powers and other nations,
particularly for military buildup.
D. Education and Values: Developing a pioneering, fighting, and agricultural
youth; education; the army as a melting pot; discipline; ethics, values, and
spirit.
E. Enhancing Qualitative Superiority: Intellectual development, especially in
scientific fields; recruitment of women; high human capital.
F. Security System: Victory at all costs; defense of the inhabitants of the land;
protection of Jews worldwide.
14 Aspects of the Formation of Israel's National Security Doctrine | October 2024

G. IDF: Starting point of a war that begins defensively, with the IDF launching an
offensive afterward; a military force based on reserves.
5. Military Implications:
The principles outlined by Ben-Gurion and the various military documents discuss
the need to halt enemy attacks, recognizing that there would be no early warning
for a strike. They also address the need for rapid reserve mobilization,
counterattacks, and shifting the battle to enemy territory due to the lack of
strategic depth. Additionally, there were discussions about the different types of
wars that could be encountered, such as surprise or non-surprise attacks on the
security system and the IDF, as well as preemptive or preventive wars, which were
common topics until 1967.
6. Notes:
In this foundational period, the concept known later as the "security triangle"—
Deterrence, Early Warning, and Operational Decision—was notably absent. The
ideas included in the triangle appear indirectly in the documents but not explicitly.
The only consistently recurring element is defense.
7. Selected Quotes:
"What caused me such great concern in this examination are the non-military
factors of our security: the economy, settlement, immigration—excessive greed,
contracting in civilian work and industry [...] and the dangerous concentration of
population in a small area, around Tel Aviv, exposed to a sudden enemy attack."
—David Ben-Gurion, Army and State, 1953
 Aspects of the Formation of Israel's National Security Doctrine | October 2024 15

Second Period – 1967–1985 – Expansion of Borders

and Creation of Strategic Depth

1. Strategic Context:
The second period begins just before the Six-Day War, when Israel still perceived
itself as having narrow security margins and lacking strategic depth. There was also
an understanding that the Arabs had an advantage in the balance of power and
that a "preemptive strike" (not just defense) was necessary to offset this. After the
war, Israel’s borders expanded, leading to a sense of political and public
satisfaction, often referred to as "complacency" ("Mabsutism" in Hebrew). At this
stage, Israel still relied primarily on itself, especially following France's distancing
from Israel. Israel sought to establish ties with new countries such as Iran and
Turkey, and this was also the beginning of its cooperation with the United States.
After the Yom Kippur War in 1973, Israel faced a profound national crisis and had
to confront the reality that it could not stand alone against its enemies. Increasing
dependence on the U.S. emerged, following its military and security support
during and after the war. The "special relationship" Israel established with the U.S.
became a significant factor in strategic political thinking. During this period, Israel
faced limited resources and new regional dangers, such as the rise of pan-Arabism,
the threat of nuclear proliferation in the region, and the understanding that multi-
front warfare was always a possibility. At the same time, this period saw the
beginning of security arrangements, culminating in the 1979 peace treaty with
Egypt. Politically, a major shift occurred in the 1977 elections when the right-wing
Likud party rose to power. The period ended with the 1982 Lebanon War
(Operation “Peace for Galilee”), which provided Israel with additional strategic
depth in the form of a continuous security presence in the north and increased
public pressure.
8. Initiators of the Concept:
During this period, the military leadership primarily dealt with the security
concept. General Avraham Tamir held several key positions starting in the 1960s,
including Head of Operations, Head of Planning, and eventually Head of the
16 Aspects of the Formation of Israel's National Security Doctrine | October 2024

National Security Division. Two important documents were written during this
time: a document outlining security principles prior to the Six-Day War, and the
three volumes of National Security, which were published in 1980 after several
years of work by the Ministry of Defense.
9. Approval of the Concept:
The concept developed before the Six-Day War was approved internally within the
IDF but did not receive government approval in time. The National Security
concept was approved by the Minister of Defense and submitted to the
government, though it remained unofficially sanctioned at that level.
10. Core Principles of the Concept:
The various documents, and the military writings that followed them (mainly the
multi-year plans), partially continued the direction set by Ben-Gurion. The key
components addressed were:
A. Jewish Majority and Strengthening Settlement: Population distribution and
settlement; diaspora Jewry; pioneering spirit.
B. Economy and Self-Reliance: Strong economy; infrastructure development;
state resources.
C. International Cooperation and Assistance: Agreements with nations;
establishing and strengthening the special relationship with the U.S.; military
buildup and arms acquisition.
D. Education and Values: [No reference.]
E. Enhancing Qualitative Superiority: Technological, educational, and human
capital superiority; development of weaponry and force buildup; readiness of
regular and reserve forces.
F. Security System: Territorial defense; internal security; civil defense;
deterrence against the use of nuclear weapons (no general deterrence
mentioned); a "fighting nation"; organized command and control (C2).
G. IDF: Deterrence; containment; preemptive strike; counterattack on at least
one front; countering terrorism; military centers of gravity (platforms).
11. Military Implications:
Although the military echelon primarily dealt with the security concept, its
implications were aimed at the national level rather than the military alone. The
 Aspects of the Formation of Israel's National Security Doctrine | October 2024 17

military aspects of the concept were reflected in various multi-year plans, where
the components of what later became known as the "Security Triangle" began to
appear. For example, the Maccabi multi-year plan (1966–1967) mentioned the
need for comprehensive deterrence, a primary effort on one land front, a strategic
operational decision on at least one front (independent of nuclear weapons),
increased strategic depth, no preemptive strike, and containment capabilities.
12. Notes:
A. References to the "Security Triangle" appear in IDF writings during this period.
Documentation suggests that this concept was later referenced in multi-year
plans and in certain sections of the National Security documents.
B. It is evident that the components of education and values do not appear in the
newer concepts, although they are still somewhat present in the national
discourse.
13. Selected Quotes:
"The above-mentioned areas of activity require the existence of constant
systems to ensure national security: A. through diplomatic means; B. through
military means; C. through economic means; D. through the civilian population;
E. through physical infrastructure."
—National Security, Part B – The Foundations of Israel’s National Security, 1981, 14.
18 Aspects of the Formation of Israel's National Security Doctrine | October 2024

Third Period – 1985–2000 – The Shift to Different

Warfare – Terror Organizations – The Threatened
Homefront Becomes an Additional Front

1. Strategic Context:
The third period marks a shift from a desire to alter the status quo, primarily
through territorial conquests and the creation of strategic depth, to a focus on
securing Israel’s safety and that of its citizens without seeking additional territorial
gains. The Arab nations’ motivation for war remained high and did not diminish
over time. This period saw the continuation of peace agreements, with new
accords being signed and efforts to promote settlements (e.g., the peace
agreement with Jordan, the Oslo Accords, and talks with Syria and the
Palestinians). Ben-Gurion's assertion that the conflict between Israel and the Arabs
could not be resolved through military means was internalized, with hopes that
the enemy would also understand this and turn to diplomatic solutions. Arab
states recognized Israel's vulnerabilities and prepared to exploit them, both
through military buildup and forming Arab coalitions. Additionally, there was an
increase in hostile terrorist activities, including terrorism and long-range attacks.
The Homefront became a significant target, especially after the withdrawal to the
security zone in Lebanon and the two Intifadas. The first signs of precision-guided
munitions (PGMs) appeared in the strategic thinking of the political echelon.
2. Initiators of the Concept:
During this period, the political echelon resumed discussions on security concepts,
with political and military committees formed to update the discourse. However,
it should be noted that the highest-ranking government official involved was the
Minister of Defense, and, as far as is known, the topic did not engage the Prime
Minister or other government ministers. The first Meridor Committee—
Subcommittee on Security Concept and its Implementation—was established
during this period.
 Aspects of the Formation of Israel's National Security Doctrine | October 2024 19

3. Approval of the Concept:

The various concepts and documents written during this time were approved at
the military level by the Chief of Staff and later by the Minister of Defense. Some
were even presented to the government, though they were not formally
approved.
4. Core Principles of the Concept:
A. Jewish Majority and Strengthening Settlement: [No reference]
B. Economy and Self-Reliance: Research and development; technological
education.
C. International Cooperation and Assistance: Pursuit of peace; special
relationships.
D. Education and Values: Fostering a sense of mission among the youth;
educating and nurturing leadership in the IDF to take initiative and adopt a
stance.
E. Enhancing Qualitative Superiority: High-quality personnel in the IDF;
technological superiority; promoting motivation for military service.
F. Security System: Defensive strategic concept (defense, deterrence); offensive
operational concept (operational decision—achieved at a low cost and in a
short time); strategic endurance (the ability to sustain prolonged combat with
few constraints on decision-making); preemptive strike; delaying war—
restoring deterrence; imposing a heavy cost on the enemy.
G. IDF: Defense, attack, breakthrough, and delivering a heavy blow to the enemy;
defensive-preventative strategy with the option of a preemptive strike;
minimal attrition of Israeli forces; preventive operations; operational decision
(nullifying the enemy’s will to continue fighting).
5. Military Implications:
The IDF prepared for Chief of Staff discussions on the security concept, and Major
General Avihu Ben-Nun, Head of the Planning Directorate, published a document
titled Security Concept – Platform for General Staff Discussion in 1985. Initially, the
IDF’s approach to the security concept was based on this document, and later, in
the absence of a structured IDF strategy, the main expression of conceptual ideas
was found in various multi-year plans. In the multi-year plans of the 1980s and
20 Aspects of the Formation of Israel's National Security Doctrine | October 2024

early 1990s, references can be found to deterrence, a primary effort on one land
front and at least one other front, a comprehensive strategic operational decision
(independent of nuclear weapons), increased strategic depth, no preemptive
strike, and containment. The Shahar multi-year plan also addressed qualitative
buildup.
6. Notes:
While the 1990s witnessed significant immigration from the Soviet Union and
Ethiopia, and despite political discourse on settlement (Judea and Samaria, and
star-shaped settlements), there is no reference in the security concept documents
to the issue of a Jewish majority, the Jewish diaspora, immigration, or settlement.
The focus was primarily on security and military issues.
7. Selected Quotes:
"The State of Israel does not have a doctrinal security concept determined by the
political echelon and delivered to the IDF as binding policy. The security concept has
developed collectively over the years, sometimes in response to specific circumstances,
formulated by the IDF and approved by the political echelon. At times, the security
concept or changes to the existing concept were formulated by defense ministers (David
Ben-Gurion, Moshe Dayan, Arik Sharon), not always as a comprehensive vision [...] The
existing security concept was formulated by the General Staff in 1980 as part of
discussions on the 'Shahar' plan and presented to the government in its entirety [...] At
the core of the security concept, it was determined that operational decision would be
achieved on land by swiftly transferring the war to enemy territory."
—Major General Avihu Ben-Nun, Security Concept – Platform for General Staff Discussion, 1985

"IDF capabilities required in light of the concept: deterrence—maintaining deterrence

to prevent war, or at least delay it and reduce its scale and the number of participants;
[...] early warning—providing reliable and timely warning of war; operational
decision—maintaining the ability to achieve operational decision (including the option
of executing a preemptive counterattack), requiring: defense capability [...] offensive
capability [...] strategic endurance—a prerequisite for maintaining other capabilities."
—Israel’s Security Concept (in preparation for the "Misgav" multi-year plan), 1989
 Aspects of the Formation of Israel's National Security Doctrine | October 2024 21

Fourth Period – 2000–2023 – Emergence of the

Radical Axis and Global Multi-Polar Organization
(GPC)

1. Strategic Context:
The fourth period is characterized by changing nature of conflicts, with a focus
on the rise of fundamentalist Islam and the intensification of terror attacks both
at Israel's borders and within its territory (and globally, as in the 9/11 attacks in
2001). The U.S. aimed to reshape the Middle East and promote
democratization. There was a shift towards asymmetric and sub-conventional
conflicts, with an increasing risk of unconventional conflicts. Combat moved
into densely populated areas, with the media becoming another battleground.
Meanwhile, the Palestinian issue remained unresolved, nuclear proliferation
(especially in Iran) became a concern, and the "radical axis" formed. There was
a growing likelihood of state-level wars, alongside the collapse and rebuilding
of regimes in several Arab nations (such as Syria, Libya, and Egypt). This period
also saw a renewed push for diplomatic arrangements, marked by the signing
of the Abraham Accords and efforts to expand them, providing potential for
regional stability with moderate Arab states. Israel sought to bolster its security
position, maintained its "special relationship" with the U.S., and developed
broader international cooperation. Domestically, security was influenced by
deep civil-military tensions, political instability, repeated clashes on the Gaza
front, an increasing threat from Lebanon, and growing complexity in Judea and
Samaria area and internal security. Simultaneously, significant technological
advancements—such as precision-guided munitions and unmanned
capabilities—changed the rules of engagement, affecting international law and
military operations.
2. Initiators of the Concept:
During this period, there was renewed political involvement in the security
concept. Defense Minister Shaul Mofaz appointed Knesset member Dan
Meridor to revisit the concept, followed by Defense Minister Avigdor
22 Aspects of the Formation of Israel's National Security Doctrine | October 2024

Lieberman, who tasked Major General Yair Golan with drafting a new security
concept while still in active service. Prime Ministers Benjamin Netanyahu and
Naftali Bennett indirectly addressed national security principles. The subject
was also discussed within the IDF and embodied in documents such as "The IDF
Strategy" and operational concepts developed in 2002 (under Defense Minister
Shaul Mofaz), 2006 (Chief of Staff Dan Halutz), 2015–2018 (Chief of Staff Gadi
Eisenkot), and 2019 (Chief of Staff Aviv Kochavi).
3. Approval of the Concept:
The concepts developed during this period remained in draft form and were
not officially approved, even if presented to the government.
4. Core Principles of the Concept:
A. Jewish Majority and Strengthening Settlement: [No reference]
B. Economy and Self-Reliance: Ensuring economic resilience; developing
independent capabilities.
C. International Cooperation and Assistance: Strengthening the special
relationship with the U.S.; developing ties with additional key players in the
region; bolstering peace agreements and realizing potential for
cooperation, while maintaining the understanding that Israel must rely on
its own capabilities.
D. Education and Values: "The people’s army" as a source of spiritual strength;
a Jewish and democratic state.
E. Enhancing Qualitative Superiority: Nurturing human capital; maximizing
technological opportunities.
F. Security System: National consensus on security matters; efforts to counter
political, military, and covert threats; deterrence, defense of the Homefront
and citizens, and offensive actions; use of force based on political
considerations and legitimacy; defense; alternative operational decision—
managing conflict and political agreements; awareness of the "political
hourglass" in domestic, international, and regional contexts.
G. IDF: Shift from emphasizing extensive ground maneuvers in enemy territory
to precise stand-off fire (as much as possible from within Israeli territory)
and limited ground maneuvers; simultaneous and integrated force
 Aspects of the Formation of Israel's National Security Doctrine | October 2024 23

deployment; initially, attempts to build generic capabilities, later shifting to

"boutique" capabilities tailored to specific threats; building unmanned
capabilities; strengthening PGMs; maintaining air superiority; developing
urban combat capabilities; developing land-based command and control
systems; creating specialized weaponry for limited conflicts; building
remote monitoring capabilities; improving low-signature operations;
focusing on threats from rocket and missile attacks (TMS—Trajectory-
Based Systems); enhancing intelligence for counter-terrorism and
operations in distant theaters; developing soft power efforts—information,
psychological, and media warfare; maintaining a small regular army and a
large reserve force; changes in command and control concepts (e.g., the
commander of the campaign: The command’s commander or the Chief of
Staff?).
5. Military Implications:
The IDF Strategy, developed during the 2000s (in 2002, 2006, 2015, and 2018),
is the military expression of the security concept that evolved over this period.
Its foundation includes an offensive military concept, strategic cooperation,
strengthening Israel’s regional position, maintaining qualitative superiority,
achieving long periods of calm, deterrence and intelligence, rapid threat
removal, defense across multiple fronts, fighting on multiple fronts, achieving
victory and operational decision, limited conflicts or conflicts aimed at
operational decision, broad conflict areas (front, depth, secondary, tertiary, and
internal), strategic endurance, and non-lethal weapons (to address domestic
and security concerns).
6. Notes:
A. A fourth component—civilian and military defense—was added to the
traditional security triangle, emphasizing the protection of the home front
from rocket and terrorist threats (Meridor Committee).

B. Discussions around operational decision focused on "alternative

operational decision," which is not necessarily military, echoing Ben-
Gurion's and others’ ideas that conflict cannot be resolved solely through
military means.
24 Aspects of the Formation of Israel's National Security Doctrine | October 2024

C. The IDF Strategy from 2002 efficiently organizes these concepts, including
national security doctrine, national security concept national security policy
and military security policy, and clarifies the distinctions between them.
These concepts need to be reassessed to create a shared language for the
new security concept.
D. A recurring tension in all the concepts is between self-reliance without
external dependence and international partnerships and assistance. While
there is a recognition of the need for partnerships, the ideal of self-reliance
and suspicion of international actors remain ingrained in the various
concepts.
7. Selected Quotes:
"At the core of the traditional security concept stands the ‘security triangle,’
anchoring three fundamental concepts—deterrence to prevent war,
sufficient intelligence warning before war, and operational decision in an
offensive campaign for a quick and decisive end to the war [...] Changes in the
strategic environment and the shifting center of gravity of conflicts from the
conventional battlefield to asymmetric arenas necessitate a reevaluation of
the foundational components of the 'security triangle' and highlight the need
to add a fourth element of defense, given the growing threat to the
Homefront from military, terrorist, and non-conventional weapons."
—The Committee for Formulating Israel’s Security Concept, 2006

"Substitutes for operational decision focus on 'managing conflict' until its

resolution, if at all; 'decision' in the context of a political agreement
(managing and concluding conflict with a state we do not have a peace
agreement with); and 'arrangement' in the face of terror and non-
conventional threats, requiring a different type of 'decision,' meaning the
creation of a mechanism for a temporary cessation of violence and the
establishment of a reasonable strategic reality, even in the absence of a
clear operational decision on the battlefield."
—The Committee for Formulating Israel’s Security Concept, 2006
 Aspects of the Formation of Israel's National Security Doctrine | October 2024 25

"We must deter or decisively defeat any enemy that threatens to inflict
deadly harm on us or destroy us [...] We must consistently cultivate four
strengths: security strength, economic strength, political strength, and
above all, spiritual strength [...] When failing to achieve operational decision
does not exact too high a cost, the conflict can end without a decisive
victory. In other words, in conflicts where the required political outcome
does not demand the defeat of the enemy, we can adopt a limited
response."
—Benjamin Netanyahu, Prime Minister’s Security Doctrine – Draft No. 3, 2023
26 Aspects of the Formation of Israel's National Security Doctrine | October 2024

Bibliography (Alphabetical Order)

*All the sources are in Hebrew*

Primary Sources
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 Aspects of the Formation of Israel's National Security Doctrine | October 2024 27

Meridor, Dan. Subcommittee on Security Concept and its Implementation, Volumes

A–B. 1986.
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 Aspects of the Formation of Israel's National Security Doctrine | October 2024 29

About the Authors

Maj. Kim Bar

Maj. Bar is a strategist and knowledge development expert at the Dado Center for
Interdisciplinary Military Studies. Since enlisting in the Israel Defense Forces (IDF) in
2005, she has specialized in instructional design for ground forces, strategic and
operational planning, as well as doctrine and concept development. Currently, Maj.
Bar leads systemic knowledge initiatives, contributes to strategic decision-making,
designs war games and scenario-based discussions for the General Staff, and
coordinates international partnerships. She holds a B.A. in Political Science and East
Asian Studies from Tel Aviv University and an M.A. in Art History from the Hebrew
University of Jerusalem.