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February 23, 2012 |  5 comments |  Print | E-Mail Atlantic Memos  

Memo 37

From Escalation to Engagement: How to Avoid War

Memo 37: The United States and Europe should strive to de-escalate the growing tensions between Iran and the West. The transatlantic partners could do this by reframing their Middle East policy, promoting a more coherent nuclear proliferation stance, and allowing Europe to act as a bridge between Iran and the US.

In light of renewed tensions between Iran and the West, the contributors of Atlantic Community's Iran theme week agreed that Europe and the United States must address the conflict in a fundamental and comprehensive manner, as opposed to simply military means. There is still time to avoid an armed conflict. The conventional perceptions of Iranian intentions and behavior are mainly driven by fear. The resulting European and US policy choices of isolation and sanctions leave Iranian policymakers with little room to operate and increase the influence of hardliners. With little to no maneuvering room, Iranian foreign decision-makers are willing to accept more risk. The cycle of mistrust and escalation must be broken; this Atlantic Memo summarizes the recommendations for breaking that cycle.

1. Reframe Middle East regional policy.

Middle East policy must recognize the interests of every country in the region without exception. While Israel is indeed an ally, policy is tilted too heavily in its favor. Cutting off regional powers does more harm than good (Finelli). In particular, Iran seeks recognition from the international community for its scientific achievements and legitimacy for its regime. As such, any solution can only be found within a larger regional framework that represents Iran's and its neighbors' interests alike (Lohmann).

In fact, Iran itself is far less of a strategic threat than other dangers in the region (Broschk). As with US rapprochement toward its former Cold War rivals, political considerations should not stop the West from engaging Iran. The transatlantic partners must also work closely with Russia and China and seriously consider their policy proposals for ending the standoff (Naselli).

2. Develop a coherent nuclear non-proliferation stance.

The US and its European partners must address nuclear proliferation in a coherent manner and take concrete steps toward a more legitimate nuclear regime. In its current shape, the Nuclear Non-Proliferation Treaty makes even the legitimate use of nuclear technology suspicious (Naselli). The demand that Iran not possess the full nuclear fuel cycle undermines the West's normative reach in light of its own nuclear weapons. Specifically, the US arsenal constitutes far more than necessary for an effective deterrent (Naselli). Therefore, the US should make a symbolic gesture of unilateral reduction down to levels measured in hundreds rather than the thousands.

In addition, any discussion of nuclear non-proliferation must encompass Israel as the country's nuclear arsenal serves as an important motivator and excuse for Iranian ambitions (Klösters). Only a nuclear-weapons-free zone in the Middle East will prevent Iran and other Arab countries from pursuing the nuclear option.
 
3. Europe Must Take the Lead.
 
At the moment, engagement between the US and Iran is next to impossible considering both states are locked into their positions. For either side to give in is tantamount to losing (Lohmann). Against this backdrop, Europe must reactive its own Iran policy as it is least likely to lose face in the current environment (Naselli). The goal must be to deescalate the situation while building up trust for future negotiations, and at the same time not allow Iran to play different Western countries against one another (Lohmann).

European engagement, in close consultation with the US, could act as a conduit for eventual rapprochement between the US and Iran. Practically, France and Germany must lead these efforts as they are the most trusted by and experienced in dealing with Iran.

Atlantic Memos showcase the best ideas and arguments from debates in the Open Think Tank on atlantic-community.org. Please take the next step and help us spread the word. You can download a PDF copy of this Atlantic Memo to distribute to your local or national decision-makers. The recommendations expressed above come from your Atlantic Community.

Written by Joshua Clapp. Photo credit: cc 2.0 Wikipedia

 

 
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Niklas  Anzinger

February 23, 2012

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Throughout the latest articles regarding Iran, Atlantic Community has taken an unusual one-sided approach not taking critics (as well as, from my perspective, any real developments and international discussions) of the engagement strategy into account. The memo does thus not represent the issue as currently discussed - which could be avoided by consulting different opinions.

Whatever stance towards Iran at stake, arguments from many perpectives do in any case contribute to more insight. AC missed the opportunity in that instance.
 
Paul-Robert  Lookman

February 25, 2012

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As history of the last couple of years has shown, veteran contributor Niklas Anzinger is always quick to give his views on articles relating to Iran. Interestingly, this time he succeeded in posting his reaction the day before the article itself was published, while concurrently obtaining a “rating as outstanding by one User.” Bravo!

As regards the bearing of his reaction, Atlantic Community (AC) also publishes pretty bellicose articles on Iran. For example, AC saw fit to publish Aaron Ellis’ article “We Need More Strategic Thinking in the Iran Debate”, which openly suggests illegitimate “solutions” such as “targeted killings”. Clearly, Mr Anzinger opposes any engagement with Iran, a country which - according to US Secretary of Defence Panetta - is not attempting to build nuclear weapons, a fact that was even confirmed by Israeli intelligence.

Where the author speaks in pretty vague terms of “the conflict” which must be addressed “in a fundamental and comprehensive manner”, the real issue is not whether Iran is developing a nuclear weapon, but may develop a nuclear [arms] capability. Such a capability would in no way be the existential threat the Israeli’s have claimed. It would however put a lid on US power in the region.

With a divided Europe and major players actively having pushed for more sanctions, it is an illusion to think that Europe can take any lead in engagement with Iran. What Lady Ashton could do, however, is get a consensus in Europe over unconditional support to the negotiations to achieve a nuclear-free Middle East, to be held in Finland later this year. And to make the European point, she should do so expressly without "close consultation with the US."
 
Anna  Sliwon

March 6, 2012

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I wouldn't support the EU taking the lead in negotiations with Iran either. Despite the Iranian issue having a strong proliferation basis it is still, at the bottom of a matter, a regional rivalry between two states, one of whom is enjoying a explicit financial and military support from a power with a robust arsenal of nuclear and conventional weapons. Israel's quite a strong stance in the Middle East, it's religion, way of being and also relations with the United States stand in sharp opposition to what the Iranian leadership has historically imagined for their state - the Islamic caliphate.

Nevertheless, the nuclear dimension of the issue is predominant. The global non-proliferation regime is facing another blow to its long-established principles and honourable goals, if the Iranian nuclear activities will turn out to have produced either the bomb or the level of expertise sufficient for an assembly of a nuclear device. Therefore, negotiations on establishing a nuclear weapons free zone in the Middle East should be taken into serious consideration by all parties involved, and not evolve into meetings with a foreseeable outcome of Israel denying the need to renounce its nuclear inventory. It might be very difficult to sway Israeli behaviour in that direction especially as they have heard repeated threats to the state's existence, which have effectively infused the state with a sense of paranoia. What the United States could do is to assure the Israelis of their commitment to preserving their security in exchange for refraining from a military strike on Iranian nuclear facilities. As risky an option as it is there may be a way of accompanying these diplomatic discussions with similar efforts to get Iran to be more transparent on its activities in the nuclear field and work on this state's security concerns that might shape its behaviour towards Israel. This would call for normalisation of relations with its neighbours. This particular policy path would be based on presumption of Iranian leadership's rationality in their foreign policy planning and execution.

The first and second points of the memo even though instrumental in resolving the deadlock with Iran they constitute fundamental elements of an expected policy change that might be quite time-consuming in implementation as it would require a great deal of political will. But as the deadlock drags on it might be right time to consider the changes.
 
Yasmin Jeanice Mattox

March 7, 2012

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This article is straightforward and insightful however at times too optimistic in its policy recommendations. On the first point, Mr. Clapp is absolutely correct in asserting that Israel receives too much favor and possibly assistance when considering how powerful it is. It would be interesting to further read about the author’s thoughts on the issue. At what point, if ever, could unconditional support of Israel have to be abandoned and under what circumstances? This in itself is an incredibly interesting issue with widespread implications. Clapp then mentions how there are bigger strategic dangers in the region than Iran but he doesn’t explicitly identify them and the criteria by which they should be deemed bigger threats.

On the second point, Mr. Clapp’s comments about U.S. arms hypocrisy should not go unnoticed, because it is an important observation. The United States’ calls for Iran to cease its nuclear program without addressing its own are politically understandable and realistic. However, the United States’ expectation that Iran “go without” when it seems as if every other state has nuclear weapons is pretty delusional. Clapp’s comments that the United States should decrease its arsenal “down to the hundreds rather than the thousands” in order to demonstrate a symbolic show of good faith is well meaning but seems as if it would fail. It does not seem as if it would provide a strong enough incentive for the Iranian regime to cease its nuclear program, especially since those remaining U.S. nuclear weapons would still easily annihilate Iran if it came down to that. The United States could have only one nuclear weapon and still have first strike capability, so reducing the U.S arsenal to the hundreds would still be a source of great paranoia and distrust for Iran. A U.S. unilateral reduction policy while a positive symbolic move would lack any real benefit for Iran. It would however be advantageous for the U.S. since Iran would effectively be left with even less bargaining capabilities if it seriously committed to abandoning its nuclear program while the U.S. would still have a flush nuclear arsenal. Thus, the idea of a modest arsenal decrease for the United States, while symbolic, appears to be too idealistic and lacking much practical use to provide any meaningful incentive for Iran to reverse its course. If anything, the goals of nuclear reduction in conjunction with an unwavering commitment to future non-proliferation ought to be analyzed from an Iranian non-state actor and grassroots level. For example, what can liberty movement members, ready for positive change, do to dilute the regime’s power or strip it completely? External, e.g. inter-governmental organization-led, nuclear non-proliferation policies will achieve little, if anything, if they maintain the status quo. Internal changes are critical to achieving success on the issue. Thus, grassroots efforts that address the issue through regime change or regime weakening should be bolstered.

On the third point, Iran views European as well as U.S. motives concerning Israel and Iran with great suspicion and paranoia, much of which isn’t unwarranted. Iran is more or less that last Black or White Pawn trying desperately to defend its King by itself, while its opponent still has its Bishops, Rooks, and Knights in addition to its Pawns and Queen. This is even more the case since Syria is under fire. The Iranian leadership knows that there is no real contest with the West militarily and that its real hope is to have time pass and have talks or talks in anticipation of talks long enough to acquire nuclear capabilities before drastic and paralyzing sanctions are levied against it or more ominously, military strikes against the country become reality. As Ms. Swilon above argues, a united European Union effort may be of little use. In this respect, new change agents must come into play and the author’s suggestions of more vigorous action from Russia and China in addition to France and Germany makes sense since these nations have seemed to be more detached from the rhetorical battles that have become commonplace certainly in United States-Iran interactions.
 
Unregistered User

March 20, 2012

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I came across your article on the Perspectivist website and found it to be very insightful. With recent news that the State Department was exempting 11 countries from the sanctions on trade with Iran, I feel like the US and the West are moving in the right direction realizing that diplomacy will be the only way to settle this moving forward.
 

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