We have become used to the role of non-state actors in international affairs and sub-state actors (corporations, lobbies, etc.). We now have "transnational alliances of sub-state actors." The example in the news has been the alliance between the Israeli political establishment in the person of PM Netanyahu and the U.S. Congress.
J.J. Goldberg of the Jewish Daily Forward points out and gives evidence for a parallel alliance between the White House and the U.S. defense and intelligence establishment with the Israeli military and security establishment. "After decades of intimate military and intelligence cooperation at every level between the two allies, there are few surprises."
While Netanyahu's reputation and electoral success rests on his ardent support for Israel's security, Goldberg points out that his strategic concerns are not shared by his generals and intelligence officers.
As a citizen army in a nation surrounded by enemies, Israel’s military command sees its primary mission as keeping the country secure and its citizens safe by preventing war. It seeks to do this through a combination of deterrence and diplomacy. That pits it against both the Netanyahu-led secular and settler-led religious wings of the Israeli right, which seek victory, not mere calm. The right often suspects the military’s avoidance of war reflects cowardice or worse.
Presumably this has given Obama, supported by Dempsey and Brennan, room to maneuver on the Iran negotiations which the Israeli defense and intelligence establishments favor.
It is always possible that non-state actors, AIPAC et al, will succeed in sinking the agreement with the cooperation of the U.S. Conngress and Bibi Netanyahu.