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October 31, 2011 |  13 comments |  Print | E-Mail Your Opinion  

Overcoming the Paradox of Iranian Sanctions

Sascha Lohmann: The ever increasing use of sanctions against Iran reveals their actual function as a policy substitute. An engagement strategy based on concrete reciprocity should be used to fill this strategic void.

 

US Secretary of State and President Obama, were not the only senior US government officials to respond strongly to the recently unveiled plot that allegedly involved some elements of the Iranian Revolutionary Guard Quds-Force. This Hollywood-style story of an Iranian-American paying members of a Mexican drug cartel to assassinate the Saudi ambassador in a Washington restaurant also triggered the expansion of US Treasury sanctions and revived the debate in Congress to impose a comprehensive embargo by sanctioning Iran's central bank.

The unusually high level of attention this strange episode received and the actions it provoked reveal the lack of a coherent long-term strategy to deal with Iran and its nuclear deception. The fact that a shady car dealer could drag the two countries to the brink of war illustrates the problem associated with the lack of communication channels and the fatal consequences of a policy vacuum that has defined US policy on Iran.

Lacking any meaningful incentives for Iran, the overwhelmingly coercive two-track policy has isolated the country on the financial markets and made access to spare parts for its nuclear program more difficult. As a result, the regime has had to engage in increasingly risky procurements operations on the black market. Due to technical difficulties and foreign sabotage, the output of Iran's centrifuges declined sharply and has not yet fully recovered. The primary goal of preventing Iran from independently producing nuclear reactor fuel – the precondition for nuclear breakout capacity – have, however, not been achieved by means of increased economic and political isolation.

In fact, these measures could have only been sensible if the time window until Iran reaches the nuclear threshold had been used to make progress in serious negotiations. Within a carefully designed strategy, these biting sanctions could have been used as leverage to garner concessions from Iran such as full cooperation with the IAEA and the implementation of the Additional Protocol. Without such a coherent strategy, sanctions functioned mainly as policy substitutes holding together a badly-administered containment strategy. In order to overcome this Iranian sanction paradox - the continued use of sanctions irrespective of their apparent ineffectiveness - one has to focus on the psychological dimension of the conflict. From this perspective, the drive toward nuclear breakout capability must be understood as part of Iran's ongoing quest for sovereignty, modernity and control over energy resources. The broad support it receives across party lines, including reformists, exemplifies this fact.

Although the US and Iran share a lot of interests in the broader region, cooperation is not automatically ensured as the driving forces of their conflict lie in the history of Iran's relationship with the West. After the occupation during World War II and the coup engineered by the US Central Intelligence Agency (CIA) in 1953 that stifled Iran's nascent democracy, the country remains deeply suspicious of any foreign meddling in its internal affairs. In this regard, the nuclear issue forms only the tip of the iceberg. What lies underneath is first and foremost a struggle for recognition, standing, and respect rather than acquiring offensive capabilities. Progressive policy recommendations take this psychological dimension into account. More aggressive recommendations, such as half-heartedly veiled threats of a logistically and politically unfeasible air strike campaign against nuclear facilities in Iran, fail to tackle the root causes of the conflict and help to prolong it.

The upcoming US general election and a hawkish Congress will inhibit any serious efforts to end the Iranian sanction paradox any time soon. Therefore, a joint European initiative for an engagement policy based on concrete reciprocity, including the willingness to acknowledge past mistakes, is indispensable to end the current deadlock. Steps taken in the opposite direction would only be welcoming news for Iran's hardliners who fear nothing more than a gesture of reconciliation by the US.

The sole indication of such a move, exemplified by Obama's outreached hand in 2009, started to unsettle one of the regime's core ideological features and impacted its calculations more than tough sanctions, opposition support or other nonviolent tactics. Therefore, an engagement strategy that takes the psychological dispositions of the actors seriously could eventually break the vicious circle in which both countries continually appear as strong and uncompromising only to receive symmetrical reactions on their side. As long as the war drumbeat and the sanction paradox continue, Iran's moderate citizen activists will lack the leverage to capitalize on a potential identity crisis within the regime and stimulate change from within the country.

Sascha Lohmann is a recent graduate of Free University in Berlin.

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Adam  Thew

October 31, 2011

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I couldn't agree more with Sascha's article. I also think he makes an important point that the policy of isolating Iran has failed crucially to end the potential for Tehran to acquire 'nuclear breakout capacity'. Indeed I think there's a clear link here between the failure to end Iranian nuclear ambitions and the lack of progress made towards the ambition of a 'nuclear-free world' as spoken about by Obama in his Prague speech of April 2009. Until the U.S. demonstrates a serious commitment towards leading a programme of global nuclear disarmament (obviously this entails the support of other major NWS such as Russia and China but in reality the lead can only come from Washington), there will always be an inherent duplicity in the West's isolation of Iran primarily upon this basis.

Although I would agree with Sascha that the root of Iranian nuclear ambitions lies its 'struggle for recognition, standing, and respect rather than acquiring offensive capabilities', there remains a genuine threat to Iran's security in the status-quo of a world in which the U.S. and Israel possess nuclear weapons and an outcast Iran does not. This provides a realist basis of support for the hardliners in Tehran which seems likely to continue so long as this situation prevails.

Ending the presence of this threat to Iran's security would also remove another basis of power for the hardliners in Iran and increase the chances of moderates gaining the leverage Sascha speaks of through which to bring about genuine change in the country.

Tags: | nuclear disarmament |
 
Joshua  Clapp

November 3, 2011

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Sascha, thanks for the contribution. The United States does indeed lack a coherent long-term strategy to deal with Iran and in offering Iran incentives to cooperate. And Adam makes a good point that the Islamic Republic of Iran does perceive a security threat: the United States has not given any security assurances to Iran regarding regime change.

Nevertheless, beyond Obama’s clumsy attempt at reconciliation, rapprochement between the United States and Iran seems unlikely, regardless of the upcoming general election and a ‘hawkish’ Congress. American domestic politics simply do not accommodate a complete strategic rearrangement with Iran no matter what party is in power, for example look at pro-Israel groups and I would say even Iranian-Americans, especially after the 2009 presidential election in Iran.

In addition, I would challenge the premise that rapprochement or more engagement necessarily threatens the regime’s ‘core ideological features’. Rhetorical bluster set aside, I would not say that a core feature of the regime is necessarily opposition to the West or even the United States in general anymore. Perhaps at the very beginning of the revolution. But times change. For example, Iran reached out to the West in the form of Europe and Japan, apparently without harming the regime’s foundations.

Perhaps one solution lies in taking away the perceived security dangers – easing sanctions and opposing military action – but not not necessarily pursuing full engagement until the moment is right. As such, Iran would not have the excuse of the threat of regime change for pursuing nuclear weapons, and meanwhile the West would not provide diplomatic cover for yet another authoritarian regime.

Regards,

Joshua
 
Jason  Naselli

November 3, 2011

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The problem with this idea Joshua is that it doesn't give Iran enough incentives to stop its nuclear program. As you indicated, the threat of "the West" is just that; an excuse to justify their continued nuclear program. But there are plenty of others out there... they can simply cry hypocrisy that the US and Britain are allowed to have nuclear weapons, so why not them?

To make it worthwhile for someone to give up their nuclear program, they need to be integrated into the international system; they need to have something to lose in their relations with other countries. The US coming out and saying "we pledge not to invade you" still does not give them anything to lose, because everyone knows it's not a credible promise. So unless you go for full engagement, there is no need for Tehran to change their plan because you are not giving them anything real in return.
 
Joshua  Clapp

November 3, 2011

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Jason,

Good point. There are other excuses. So even besides the threat of regime change itself, the cry of hypocrisy is probably the strongest arguments for pursuing nuclear weapons. As you said, why not them? I suppose my idea sprung from looking at previous Western involvement in the Middle East and support for authoritarian regimes.

So perhaps integration into the international system and full engagement is the best response, if it does not completely prop up the regime. Even with engagement though, I do not see the regime being necessarily undermined. Then again, the United States has not truly given Iran proper incentives for change, especially considering some Iranian elites do indeed see a strategic rapprochement with the United States as possible.

It appears that it is either full engagement or basically no engagement then. The United States does not appear willing take the small steps necessary to build a larger relationship. A complete strategic realignment seems in order. This would be very difficult to pull off, at least from the view of domestic American politics. .
 
Jason  Naselli

November 3, 2011

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I guess the question is whether you want to stimulate regime change or whether you want to control their nuclear program. They may be wholly different objectives. Regime change, as we've all seen over the past decade, can be a dangerous thing.

I'd have to hand it back to the author and other commentators though. Do you think that both those objectives can be pursued or do we have to choose one?
 
Unregistered User

November 5, 2011

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As an Iranian, I believe Iran should have left NPT in 1998; immediately after the nuclear tests of Pakistan and India. For I believe that for the reasons of state cohesion and security, Iran must have nuclear weapons.

Nothing has happened in the last 13 years to cause me to revise my opinion. In fact, the EU-US wars against Yugoslavia, Iraq, and Libya have strengthened in me my convictions in this regard.

It is perhaps too late for Iran to leave NPT - one could only hope for an attack by Israel or US to justify such a move - but not too late to put together all the pieces needed to quickly field nuclear weapons.

Neither US nor EU can put anything on the table any longer that is worth much to Iran. The time for that was 2003-2005. Iran has been on the threshold of war for too long...

I observe here that as an element of modernity, power, and progress, the Iranian government ordered a Steel Mill from Germany in 1930s. That plant was never finished due to WWII.

Likewise, the Atomic Power Plant at Bushehr, also ordered from Germany, was never completed due to the Iran-Iraq War.

In both cases, it was the Russians that gave Iranians what they wanted: first in the mid 1970s when they completed the Isphahan Steel Mill and then in 2011 when they completed Bushehr.

Russia has been a better friend to Iran over the last 80 years than US or EU.

US and EU have a very very tough sell to Iran; they are not trusted at all.
 
Joshua  Clapp

November 7, 2011

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Perhaps both objectives cannot be pursued. If that were the case, then I would opt for controlling the nuclear program through full engagement and offering real incentives. Regime change is indeed a risky project with too many consequences.

And going off of Shaban’s comment, I would be curious as to the extent of support for the nuclear program amongst ordinary Iranians and not just the elites or certain segments of the elites (speaking of, the elite aspect of the Iranian regime is highlighted well in the Top Press Commentary section with ‘Iranian Plot Makes Sense…in Iran’).
 
Sascha  Lohmann

November 8, 2011

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Thank you all very much for your comments. As the IAEA is due to issue its latest report on Iran's compliance with the NPT including new details on a possible military dimension this week, this discussion is timely and relevant.

Concerning the discriminatory nature of the NPT and the threat of military action against Iran: Those two issues surely will not help to achieve a peaceful solution and indeed make a nuclear breakout capacity appear more desirable to Tehran's hardliners. Especially in regard to Saddam Hussein in Iraq and Muammar Gaddafi in Libya who both possessed no nuclear weapons and were finally removed with regime change from outside. Compared to North Korea, nuclear weapons appear as a great incentive to ensure regime survival and with regard to Pakistan, Shaban rightly mentioned this, they enabled the regime to strategically engage with the US (a not so unlikely consideration given the fact that one of Iran's major demands is to negotiate eye-to-eye).

When it comes to public opinion in Iran, regime stability and the nuclear program are intractably intertwined. In fact, most ordinary Iranians support the nuclear program including enrichment (see the recent RAND study "What Do Iranians Think? A Survey of Attitudes on the United States, the Nuclear Program, and the Economy"). What makes things more complicated is that the regime has every incentive to exploit this support for bolstering its own standing among those ordinary Iranians.

The reason why there has been no rally-around-the-flag effect yet is the problematic relationship between the Islamic revolution and the traditionally strong Iranian nationalism. Whereas for Tehran's clerical elite, Iran's history before 1979 was basically pagan, this does not hold true for most Iranians who are proud of their impressive history and its contribution to human civilization. So the nuclear program also serves an important cause for domestic politics.

Lastly, US-Iranian relations are at the core of the conflict and as long as there is no face-saving solution for both sides (and constant escalation makes this more and more unlikely), no progress will be achieved. This is why mutual trust building is indispensable and has to be the cornerstone of any viable approach toward a sustainable and peaceful solution.

Similar to what we proposed in our Atlantic memo, Hossein Mousavian, the former Iranian chief nuclear negotiator with the EU-3 (until 2005) made such a required step-by-step proposal based on his experiences in Iran and now in the US where he is currently teaching at Princeton (http://carnegieendowment.org/files/Mousavian_Presentation.pdf).
 
Unregistered User

November 8, 2011

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Incrementalism will no longer work; it was viable in 2003 all the way to 2007.

In 2006, US drive for war in Iran ended.

In 2007, US & EU & Russia & China could have used the US Intelligence Report on Iran as a political cover to retrace their escalation to nowhere in UNSC.

They did not.

And US-EU followed with their campaign of murders, sabotage, and cyber-attacks.

To me, as an Iranian, it seems that the intent was not the resolution of the nuclear case but rather eliminating the scope of Iran's strategic autonomy.

Iranians are no going to concede do that.

Only a grand strategic engagement with Tehran will work now but that is now also an impossibility since the United Stated has made it illegal to conduct diplomacy with Iran.

You have created a dangerous confrontation across the Middle East than you (EU) no longer have the power to resolve - it seems to me.
 
Kazimierz  Wiesak

November 8, 2011

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"To me, as an Iranian, it seems that the intent was not the resolution of the nuclear case but rather eliminating the scope of Iran's strategic autonomy."
-----------
I reached the same conclusion by reading English language media. Here are few examples that led me to this conclusion.

1. To produce electricity you need 4.5 percent enrichment of uranium. To produce a nuclear bomb you need 90 percent enrichment. But English language media never give this information.

2. No-one ever says how difficult it is to get from 4.5 percent enrichment to 90 percent enrichment. Can you use the same technology, just longer, or do you need a new technology?

3. I have never seen in American media a nuclear engineering expert talking about Iran's nuclear program. Only journalists. What can be a reason for that? Evidently, they are hiding something.

4. The whole style of media writing about Iran's nuclear program is to obfuscate and confuse, not to mention to twist, distort, and manipulate, to misinform and to disinform.

I could continue, but I won't. Here is what premier Putin said few years ago: "We have no information that Iran is working on the creation of a nuclear weapon". And American spy agencies agree in those matters more with Putin than with owners and editors of the free media.

 
Joshua  Clapp

November 9, 2011

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Considering that US-Iranian relations are at the core of the conflict, there appears then to be no easy solution. As Shaban talked about, the time for incrementalism, or mutual trust building, has seemingly passed. The United States has not taken advantage of any strategic openings that have occurred in the past.

And as Mousavian points out in his proposal (thanks to Sascha for the link), even the Obama administration’s ‘engagement policy’ still includes threats, sanctions, pressure, etc. However, if trust building requires such U.S. actions to stop, then there appears to be essentially no starting point for real dialogue in light of America’s domestic politics.

Iran’s position on Israel, Iranian ties to terrorists, and Iran’s part in Iraq and Afghanistan preclude any American president, regardless of party, from a complete strategic turnaround with regards to Iran. To be fair however, in light of some Iranian actions, Washington obviously does not carry all the blame.

Mousavian also made a great point that prior to the Revolution in Iran, the West supported Iran’s nuclear industry. So Iranian ambitions for some kind of nuclear program were there pre-Revolution and will most likely remain regardless of what happens to the current Iranian regime. So Europe and the United States must decide how to deal with these nuclear ambitions - directly address the issue with the current regime or wait optimistically for a different regime to appear on the scene.

In addition, the new IAEA report claims that Iran continued its nuclear work after 2003 and that some work might still be happening. Such claims make full strategic engagement even less likely – instead a greater chance of further sanctions and higher probabilities of some kind of military attack in the future. And so I ask everyone: What then is the proper response to the IAEA findings?

Regards,

Joshua
 
Unregistered User

November 9, 2011

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In regards to your question: "What then is the proper response to the IAEA findings?". My recommendation to you is to ignore it.

It is worth keeping in mind the following extract from a Vienna US Embassy cable (in Wikileaks) regarding Yukiya Amano, the DG of the IAEA:

"Amano reminded Ambassador on several occasions that he would need to make concessions to the G-77, which correctly required him to be fair-minded and independent, but that he was solidly in the U.S. court on every key strategic decision, from high-level personnel appointments to the handling of Iran's alleged nuclear weapons program."

(http://www.guardian.co.uk/world/us-embassy-cables-documents/230076?...)


US and EU are at the cul-de-sac with respect to their Iran policy.

The Path of Confrontation, predicated on quick Iranian capitulation has not produced what was intended.


This confrontation cannot be resolved, not even through war.

War will not change the strategic situation but it will certainly destroy NPT.

And there are very good arguments that this would be a multi-year war which could lead to World War III.

US-EU and Iran are in a frozen conflict: like that of US against Cuba, US against North Korea, Cyprus, Palestine, Nagorno-Qarah Bagh etc.

Learn to live with it; Iranains have.
 
Jason  Naselli

November 9, 2011

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I don't necessarily think we should take it as far as "ignore it," but I do agree that further belligerence from either side may just feed the beast. Take steps to ensure security yes, but diplomatic posturing and public statements are unlikely to do anyone any good.

On the other hand, I take issue with the idea that someone cannot be "fair-minded and independent" and then end up consistently on one side of the argument. Sometimes there is a side that is consistently right... not saying it is the US in this instance, but the idea that impartiality means "finding merits to both sides" is ridiculous.

On another note, Shaban Omid and "Unregistered User", I invite you to log in when posting your comments or register at the link below so people can see your profile and other comments:

http://www.atlantic-community.org/index/users/register
 

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