An American Economist in a Developmental State: Marion Clawson and Israeli Agricultural Policy, 1953–1955

The American agricultural economist Marion Clawson advised the Israeli government during 1953–1955. Clawson, a protégé of John D. Black and Mordecai Ezekiel, criticized the government for ignoring economic considerations, and stated that Israel’s national goals – defense, Negev Desert irrigation, immigrant absorption via new agricultural settlements, and economic independence – were mutually contradictory. His major recommendations were to improve the realism of Israel’s agricultural plan; end expensive Negev irrigation; enlarge irrigated farms eightfold; freeze new settlements until the number of semi-developed settlements falls from 300 to 100; and limit new Negev settlements to 10 over 5–7 years. Thus, Clawson ignored political feasibility and made value judgments. Minister of Finance Levi Eshkol and Minister of Agriculture Peretz Naphtali rejected Clawson’s recommendations because they ignored Israel’s national goals. By September 1954, Clawson shifted towards greater pragmatism: He acknowledged that foreign advisors should not question the national goals or make value judgments, and sought common ground with the Ministry of Agriculture. At his initiative, he wrote Israel Agriculture 1953/54 in collaboration with the Ministry of Agriculture. Israel Agriculture was a consensus document: Clawson eschewed recommendations and accepted that the government might prioritize non-economic goals. In proposing Israel Agriculture, Clawson made a pragmatic decision to relinquish some independence for (potentially) greater influence. Ultimately, Clawson was largely unsuccessful as an advisor. Clawson’s failure was part of a general pattern: Over 1950–1985, the Israeli government always rejected foreign advisors’ recommendations unless it was facing a severe crisis.