Iran: Blame Avoidance or Solution Seeking?
The Bush administration’s shift towards negotiating with Iran is a positive move. How positive depends on whether this is a serious effort to seek a solution to the Iranian nuclear proliferation threat, or a maneuver seeking to avoid blame if diplomacy fails.
Fall 2002 and the how and why the administration went to the UN on Iraq can’t help but come to mind. This was more about checking off the box of having “tried” multilateralism than seriously seeking to make that route work. France, others, and the UN as a body had their share of blame but that didn’t take away from the disingenuousness of the Bush tactics.
Three concerns and questions to be answered about the Bush diplomacy towards Iran:
First is the framing that we’re only doing this because we had no other choice. The message is either (a) I don’t want to do this, I don’t really believe in it, so don’t expect me to be all that serious about it, or (b) boy, you’ve really got me over a barrel. The first sounds like just a gesture. The second weakens your hand. Neither is a very good way to start a negotiation.
Second concerns the cease enrichment and reprocessing precondition. Here I’m ambivalent. Two rationales for this with which I agree. One is that time is a factor --- how much of factor is debated based on different intelligence on the state and pace of the Iranian nuclear program, as well as inherent uncertainties as seen before in other cases (e.g, India in the 1990s). But no negotiator wants the other side to feel it can fall back on time being mostly on its side. The other point, as Lee makes, is that this is not a new or strictly U.S. condition but rather one that has been a fundamental part of the European position. My concern, though, is the in-your-face emphasis given this precondition in the public statement by Secretary of State Rice. Given the context of U.S.-Iranian relations this is pretty counterproductive if the goal really is to get a negotiation going.
Third is the reluctance still to take regime change off the table. One of the most applicable lessons of the Libya case is that the continued pursuit of regime change can be counterproductive to achieving policy change. The repeated reassurances the United States and Britain gave Libya of policy change not regime change were absolutely crucial. This runs counter to the view that keeping regime change as an option enhances leverage and coercive pressure. This is where the direct role of the United States especially plays in. The Libyas and Irans aren’t worried about the Europeans pursuing regime change. They are worried about the United States doing so. This both has underlying bases in history as well as current resonance in Bush doctrine. There need to be security assurances, and they need to come from us. This doesn’t preclude support for human rights and democratization, but it does mean taking regime change off the table.
Some tests for determining whether the Bush administration is again playing the blame avoidance gambit, or is serious about diplomacy.












J. McCutchen "JmacSF"
San Francisco. CA
June 1, 2006 8:29 AM | Reply | Permalink
J. McCutchen "JmacSF"
San Francisco. CA
I hope Josh and Kate get around to fixing this thing...
[pearls of wisdom lost to the ages}
There's an old saying in Tennessee — I know it's in Texas, probably in Tennessee — that says, fool me once, shame on — shame on you. Fool me — you can't get fooled again."
June 1, 2006 8:31 AM | Reply | Permalink
J. McCutchen "JmacSF"
San Francisco. CA
June 1, 2006 8:35 AM | Reply | Permalink
I just posted on this on Steve Clemons's site, but it seems appropriate to post it here as well:
My sense is that Iran should counter the US opening gambit, and keep the hope of negotiations alive, by seeking to turn the US "precondition" into a gesture of good will, and offer a temporary suspension of enrichment (one or two months perhaps) in exchange for an accompanying gesture of good will on the part of the Americans - perhaps redeploying certain Air or Naval forces in the region, or returning the USS Abraham Lincoln or the USS Enterprise to its port of call?
The US is trying to maintain assymmetry by suggesting that the only opening good will gesture they need make is the bare willingness to negotiatiate. But either that is good enough for both sides or not good enough for either. If the US is entitled to demand some opening gesture to test Iran's seriousness, then the Iranians are entitled to ask for a similar seriousness-proving gesture.
I also have a question for experts. Would the suspension of enrichment and reprocessing render Iran's nuclear facilities more vulnerable to attack? What I had in mind is whether ongoing enrichment activity in those facilities means that an attack on them would produce: (a) more nuclear fallout or (b) higher casualties. If so, then a US attack would be a greater political/public relations disaster if enrichment is going on than if it occurred during a period of suspended activity, and continuing enrichment would have deterrent value for Iran. Iran, understanding this, would then reasonably regard the suspension of enrichment as dropping a glove and exposing themselves to an early attack, and not want to take this risk without some gesture from the other side.
June 1, 2006 8:53 AM | Reply | Permalink
J. McCutchen "JmacSF"
San Francisco. CA
"After every ''victory'' you have more enemies."
Jeanette Winterson
June 1, 2006 9:17 AM | Reply | Permalink
I think the Rummy/Cheney faction will have us in a war with Iran.
I am not sure they will do it before or after the mid-term elections. But, it may be sort of like Hitler going for Russia after failing to subdue England.
::JRBehrman
June 1, 2006 9:39 AM | Reply | Permalink
J. McCutchen "JmacSF"
San Francisco. CA
On the precondition:
"We will negotiate the existence of your regime if and only if, when and only when you clear all settlements in the West Bank and recognize a sovereign state with its capital - Jerusalem"
With warmest personal regards, we remain
Sincerely
HAMAS
June 1, 2006 10:13 AM | Reply | Permalink
I agree that this a poor negotiating tactic, but I think that this is public posturing for domestic consumption. Jacksonians are not big fans of multilateralism and diplomacy, and certainly the Jacksonians on the Bush team - Rummy and Cheney have been fighting a multilateral diplomatic approach to Iran all along.
Despite the certainty of the paranoid left that the current situation with Iran will play out exactly like the run-up to the Iraq war, there are strong reasons to think to contrary. First, the facts are fundamentally different here: (1) The Iranians are far further along in their pursuit of nuclear weapons than Iraq was in 2002; (2) our European allies take the Iranian threat far more seriously than they did the Iraq WMD threat (which suggests that there is far less intelligence cooking going on this time); (3) Iran presents a much harder military target than Iraq did (Iraq was clearly the lowest hanging branch on the "Axis of Evil" ); and (4) the US has far less capacity for a unilateral military response than it did prior to the Iraq war.
All of these things suggest that a unilateral approach to Iran is ever crazier than a unilateral approach to Iraq was. At best, it can serve as a looming stick with which to prod Russia and China to support aggressive diplomacy. Rice has shown every indication that she sees unilateralism is a preferred option and not ideological necessity. Contrary to the conspriacy theorists assumptions, if Iran was just a repeat of Iraq - Bush wouldn't have waited this long. The Administration certainly wouldn't have let the EU take the lead in negotiations. Even for this Administration, reality does intrude sometimes. When it does, we should applaud it.
June 1, 2006 11:07 AM | Reply | Permalink
J. McCutchen "JmacSF"
San Francisco. CA
"I mean to try to settle this by diplomacy but if Iran continues to be obstinant, and defy the world, the world will act in the Security Council"
Case closed
June 1, 2006 11:12 AM | Reply | Permalink
President Bush has no credibility on the issue of threats to America. He has an established track record where he decides to throw a punch and then postures with his cronies that he's trying to do the honorable thing, when he's really just trying to pick a fight.
Like the entitled preppie with a chip on his shoulder, he caterwauls on and on about how that guy over there has this attitude, and that, "he's just waiting to pop me in the jaw," followed with a crescendo of, "but damnit--he keeps looking at me...I'm gonna teach him to stop lookin'..."
June 1, 2006 11:22 AM | Reply | Permalink
Iran has said repeatedly since restarting conversion in August 2005 that it perceives that it made a mistake ceasing enrichment for negotiations with Europe in 2003.
I don't expect Iran to halt enrichment without a clear benefit offered in advance, and talks are not a clear benefit.
I'm not sure Iran would perceive a redeployment of US forces as a clear benefit because I don't think anyone thinks an attack is imminent or will happen in 2006.
June 1, 2006 11:55 AM | Reply | Permalink
A country that is serious about negotiating an agreement does not insist that the other side first concede what the country wants before the negotiations begin. Obviously if Iran stops its nuclear program and starts negotiating, there is no pressure at all on our country to reach a mutually agreeable settlement - we will already have gotten what we say we want. To me that means our offer is aimed solely at Bush's base, for domestic consumption only. I'm no diplomat, but I can easily see this, so the diplomats for other countries certainly see it too.
The Iran situation can be guaranteed not to follow the Iraq situation exactly. Iran and Iraq differ by one letter. That just means our inevitable attack on Iran will follow a different path.
Hoppy in Sacramento
June 1, 2006 11:55 AM | Reply | Permalink
If you're talking about facts, note the fact that after years of intensive inspections, the IAEA has still not found any nuclear weapons programs in Iran. None. Zilch. Nada.
June 1, 2006 12:05 PM | Reply | Permalink
>> France, others, and the UN as a body had their share of blame
You surely must be joking!
This is like saying that the rape victim wore a miniskirt so she had her share of the blame.
The evidence you give in your essay is that France appeared to want to counter the hyperpower.
No shit it did! To stop us from doing the dumbest thing we've done in 40 years!
The US bears 100% of the responsibility for this war!
France should be, if anything, thanked for doing all it could to stop that disaster from occurring.
So, don't try to pass on the blame to others.
We own this one!
We caused this war. At least let's not be cowards about it and avoid the Jentlesonesque "the world screwed up" mantra.
Nope, we, the US, screwed up!
June 1, 2006 12:42 PM | Reply | Permalink
I like the idea of Iran suspending for ninety days in return for something CONCRETE from the US - such as taking military action off the table, since it's illegal anyway - but of course it ain't gonna happen. Certainly the Iranians are better at diplomacy than the bozos we have, so they might do something like that.
I think at this point, though, the Iranians can see perfectly clearly what is going on, and their motivation to go along with the charade is probably lessening daily. There's a report out today that they're continuing to rearrange their military for long-term guerrilla war against a US invasion, although Anthony Cordesman dismisses that as nothing new.
While I'm not a nuclear expert - and I don't even play one here, unlike certain trolls who play at being expert at everything - I doubt enrichment per se would matter much. There isn't that much going on and it's only going on in one place as far as we know. The uranium gas is already there, it's just being enriched to a slightly higher level, so an attack before or after that probably wouldn't raise any more environment threat than already exists.
I doubt the Iranians would view that as much of a deterremt against the US if they really believe the US is going to attack them.
The REAL environment threat is the possibility of nuclear bunker busters being used. That is definitely a serious issue, and Bush should have been condemned for not taking it off the table when it was broached by the Pentagon planners. The Iranians would be wise to raise that issue as a precondition for any negotiations if the US is going to raise preconditions.
June 1, 2006 7:00 PM | Reply | Permalink
"Contrary to the conspriacy theorists assumptions, if Iran was just a repeat of Iraq - Bush wouldn't have waited this long. The Administration certainly wouldn't have let the EU take the lead in negotiations."
Speculative.
The Iran issue has been on the IAEA table for three years or so, but only infrequently brought up on the US table because Iraq was the hot problem.
The Iraq issue was essentially on the table since Bush got into office in 2000, not to mention the previous ten years of sanctions and inspections and the like.
The ratcheting up of rhetoric on the part of the neocons and the Bush administration began last year. The ratcheting up of rhetoric on Iraq began shortly after 9/11 and continued for a year and a half.
So I don't see any evidence that the timing is wrong. Besides, Iran IS a harder issue, AND there is the problem of Iraq which complicates matters. Bush can't simply say, "Okay, attack!" Even the Pentagon would balk, not to mention everybody else in the world. So Bush has to play this one slightly more nuanced than he did Iraq - especially since everyone knows he lied about Iraq.
Clearly, from the rhetoric and behavior so far, not MUCH more nuanced - but somewhat. Mostly what Bush and the neocons seem to be doing is ratcheting up the rhetoric but at the same time downplaying the immediacy of military action - publicly, anyway - in order to keep the anti-war opposition off balance.
And that's working out fine, since most of the "anti-war opposition" are clueless or in denial.
As for the EU taking the lead in negotiations, the US has not talked to Iran for decades. Also, Iran has been approaching the US repeatedly. Obviously, from the neocon perspective, suddenly opening up direct negotiations would be counter to their agenda. There's not much difference between this and North Korea in this regard. The standard Bush policy has been "Axis of Evil - so we don't talk to them."
Not to mention that the "crisis" is manufactured in the first place, since there is NO evidence of any Iranian nuclear weapons program. So why would the US want to take the lead in negotiations when there is nothing to negotiate - other than for public consumption?
The more one looks at this offer, the more it seems like a "checkbox" on the way to a military strike within the next five months, if not sooner.
June 1, 2006 7:12 PM | Reply | Permalink
There are a number of "anyones" who do - and I'm referring to people with some inside contacts with the Pentagon and the Bush administration.
Since the Iranians are continuing to rearrange their military to emphasize guerrilla warfare tactics, according to a report today, it would seem they continue to be wary, as well.
The Iranians would obviously view a redeployment as favorable since it would lessen (somewhat, depending on the exact nature of the redeployment) the chances of an early attack.
June 1, 2006 7:15 PM | Reply | Permalink
Laura Rozen has a report on the offer over at American Prospect Online.
Money quote:
"Far from being interpreted internationally as a sign of weakness, the U.S. move seemed to have the immediate effect of strengthening the U.S. position, particularly amongst international allies, including U.N. Security Council members Russia and China.
“I was surprised at the extent to which the reporting missed that the carrot took 30 seconds to agree to once we had agreement about the stick,” said Clawson. “The problem is getting the Europeans and the Russians on board about the stick. Once we got that, the Bush administration did not even have to blink its eye” about agreeing to come to the table.
Inside the U.S. government, one could detect Thursday a palpable sense of new energy being breathed into the diplomatic option, however uncertain the outcome or the Iranian response.
“I wasn’t here in the run-up to the Iraq War,” says an administration official who declined to be named. “But some of my colleagues who were have said it [the recent Iran track] has been déjà vu all over again. Something had to be done. And so [Rice] did it. And she had a lot of help; there have been some powerful voices in Washington making this case. She is sticking her neck out a little bit, trying to push this through, and leaving it up to the Iranians to do the right thing.”"
The only problem I have with this is the fact that the precondition made by the US is THE main sticking point on the whole issue.
So I'm not so sure Rice was "sticking her neck out" except possibly to the degree of attaching the offer of "direct negotiations" - a neocon sticking point - to the suspension of uranium enrichment.
It's moot anyway because the Iranians appear to have rejected the offer as "nothing new" - which it really isn't from the point of view of the conditions themselves.
June 1, 2006 9:20 PM | Reply | Permalink
And Here is John Bolton's take on it - listen for yourself.
Transcript:
BOLTON: And I think when the President says it’s unacceptable, I think what he means by that is that it’s unacceptable. So it’s important…
CAVUTO: But unacceptable means that if it keeps going on you’re going to do something about it…
BOLTON: That no option is taken off the table. And Secretary…
CAVUTO: Military as well?
BOLTON: Exactly. Secretary Rice…
CAVUTO: Unilateral military action?
BOLTON: Secretary Rice made that point again today. But that’s why I think…
CAVUTO: That we would, I’m sorry Ambassador, that we would act alone if we had to?
BOLTON: That’s why he says no option is taken off the table. But it’s also why he has, the President, has reached out President Putin and other leaders in the past couple of days to say, “We’re making a significant step here,” that will be criticized by many of the president’s staunchest supporters here at home. But he’s taking this step to show strength and American leadership and to say he’s willing to do something that may be unpopular even with some of his supporters, to remove all excuses from Iran and its supporters to say, “We went the extra mile. We gave Iran really, this last chance to show that they are serious when they say they don’t want nuclear weapons.” This is put or shut up time for Iran."
June 2, 2006 12:45 AM | Reply | Permalink
Yes, it surely seems that if the true goal is negotiation, then the offer to do so ought not to sound like an ultimatum, as Rice's did. Surely the Iran experts in the administration, who must have been involved in the vetting of the speech, could have advised against such an approach. The Iranian government, if they were to agree to it, would be seen by their own domestic constituency as capitulating to US demands. Consequently, they simply were unable to agree to negotiate.
Politics is the art of preventing people from taking part in affairs which properly concern them. --Paul Valery
June 2, 2006 8:36 AM | Reply | Permalink