Iraq Study Group: U.S. Should Constructively Engage Iran

Today, the Iraq Study Group released its new report recommending a change of course in Iraq and calling on political leaders to bring a responsible conclusion to a lengthy and costly war. The report warns that the situation in Iraq is "grave and deteriorating." In the letter introducing the Iraq Study Group Report, co-chairs James A. Baker III and Lee H. Hamilton acknowledge there is no magic formula to solve the problems of Iraq. They write: In this consensus report, the ten members of the Iraq Study Group present a new approach because we believe there is a better way forward. All options have not been exhausted. We believe it is still possible to pursue different policies that can give Iraq an opportunity for a better future, combat terrorism, stabilize a critical region of the world, and protect America’s credibility, interests, and values. Our report makes it clear that the Iraqi government and the Iraqi people also must act to achieve a stable and hopeful future."

The report makes 79 recommendations, including recommending Iraqi actions. Here are excerpts from portions of the Iraq Study Group report related to Iran:

3. Dealing with Iran and Syria
Dealing with Iran and Syria is controversial. Nevertheless, it is our view that in diplomacy, a nation can and should engage its adversaries and enemies to try to resolve conflicts and differences consistent with its own interests. Accordingly, the Support Group should actively engage Iran and Syria in its diplomatic dialogue, without preconditions.

The Study Group recognizes that U.S. relationships with Iran and Syria involve difficult issues that must be resolved. Diplomatic talks should be extensive and substantive, and they will require a balancing of interests. The United States has diplomatic, economic, and military disincentives available in approaches to both Iran and Syria. However, the United States should also consider incentives to try to engage them constructively, much as it did successfully with Libya.

Some of the possible incentives to Iran, Syria, or both include:

i. An Iraq that does not disintegrate and destabilize its neighbors and the region.
ii. The continuing role of the United States in preventing the Taliban from destabilizing Afghanistan.
iii. Accession to international organizations, including the World Trade Organization.
iv. Prospects for enhanced diplomatic relations with the United States.
v. The prospect of a U.S. policy that emphasizes political and economic reforms instead of (as Iran now perceives it) advocating regime change.
vi. Prospects for a real, complete, and secure peace to be negotiated between Israel and Syria, with U.S. involvement as part of a broader initiative on Arab-Israeli peace as outlined below.

RECOMMENDATION 9: Under the aegis of the New Diplomatic Offensive and the Support Group, the United States should engage directly with Iran and Syria in order to try to obtain their commitment to constructive policies toward Iraq and other regional issues. In engaging Syria and Iran, the United States should consider incentives, as well as disincentives, in seeking constructive results.

Iran.

Engaging Iran is problematic, especially given the state of the U.S.-Iranian relationship. Yet the United States and Iran cooperated in Afghanistan, and both sides should explore whether this model can be replicated in the case of Iraq. Although Iran sees it in its interest to have the United States bogged down in Iraq, Iran’s interests would not be served by a failure of U.S. policy in Iraq that led to chaos and the territorial disintegration of the Iraqi state. Iran’s population is slightly more than 50 percent Persian, but it has a large Azeri minority (24 percent of the population) as well as Kurdish and Arab minorities. Worst-case scenarios in Iraq could inflame sectarian tensions within Iran, with serious consequences for Iranian national security interests.

Our limited contacts with Iran’s government lead us to believe that its leaders are likely to say they will not participate in diplomatic efforts to support stability in Iraq. They attribute this reluctance to their belief that the United States seeks regime change in Iran.

Nevertheless, as one of Iraq’s neighbors Iran should be asked to assume its responsibility to participate in the Support Group. An Iranian refusal to do so would demonstrate to Iraq and the rest of the world Iran’s rejectionist attitude and approach, which could lead to its isolation. Further, Iran’s refusal to cooperate on this matter would diminish its prospects of engaging with the United States in the broader dialogue it seeks.

RECOMMENDATION 10: The issue of Iran’s nuclear programs should continue to be dealt with by the United Nations Security Council and its five permanent members (i.e., the
United States, United Kingdom, France, Russia, and China) plus Germany.

RECOMMENDATION 11: Diplomatic efforts within the Support Group should seek to persuade Iran that it should take specific steps to improve the situation in Iraq.

Among steps Iran could usefully take are the following:
• Iran should stem the flow of equipment, technology, and training to any group resorting to violence in Iraq.
• Iran should make clear its support for the territorial integrity of Iraq as a unified state, as well as its respect for the sovereignty of Iraq and its government.
• Iran can use its influence, especially over Shi’a groups in Iraq, to encourage national reconciliation.
• Iran can also, in the right circumstances, help in the economic reconstruction of Iraq.

Other excerpts include:

"The situation in Iraq is grave and deteriorating. There is no path that can guarantee success, but the prospects can be improved."

"Our most important recommendations call for new and enhanced diplomatic and political efforts in Iraq and the region, and a change in the primary mission of U.S. forces in Iraq that will enable the United States to begin to move its combat forces out of Iraq responsibly. We believe that these two recommendations are equally important and reinforce one another. If they are effectively implemented, and if the Iraqi government moves forward with national reconciliation, Iraqis will have an opportunity for a better future, terrorism will be dealt a blow, stability will be enhanced in an important part of the world, and America's credibility, interests and values will be protected."

"The United States should immediately launch a new diplomatic offensive to build an international consensus for stability in Iraq and the region. This diplomatic effort should include every country that has an interest in avoiding a chaotic Iraq, including all of Iraq's neighbors. Iraq's neighbors and key states in and outside the region should form a support group to reinforce security and national reconciliation within Iraq, neither of which Iraq can achieve on its own.""Given the ability of Iran and Syria to influence events within Iraq and their interest in avoiding chaos in Iraq, the United States should try to engage them constructively. In seeking to influence the behavior of both countries, the United States has disincentives and incentives available. Iran should stem the flow of arms and training to Iraq, respect Iraq's sovereignty and territorial integrity, and use its influence over Iraqi Shia groups to encourage national reconciliation. The issue of Iran's nuclear programs should continue to be dealt with by the five permanent members of the United Nations Security Council plus Germany. Syria should control its border with Iraq to stem the flow of funding, insurgents and terrorists in and out of Iraq...

"The United States cannot achieve its goals in the Middle East unless it deals directly with the Arab-Israeli conflict and regional instability. There must be a renewed and sustained commitment by the United States to a comprehensive Arab-Israeli peace on all fronts: Lebanon, Syria and President Bush's June 2002 commitment to a two-state solution for Israel and Palestine. This commitment must include direct talks with, by and between Israel, Lebanon, Palestinians - those who accept Israel's right to exist - and Syria...

"As the United States develops its approach toward Iraq and the Middle East, the United States should provide additional political, economic and military support for Afghanistan, including resources that might become available as combat forces are moved out of Iraq."