sanctions

Seth Robinson has a interesting essay over at The New Republic that explains why Russia is loathe to sanction Iran over nuclear issues.  The key part: 

How does Russia benefit from its nuclear cooperation with Iran? Simple economics provides a compelling first answer: The Russian economy has not only reaped the benefits of the Bushehr deal, but it has also been bolstered by the sale of fuel and the potential sale of additional reactors. What's more, the nuclear project is only one of many economic agreements between the two countries. Total bilateral trade hovers around $2 billion, as Russia supplies Iran with consumer goods, oil and gas equipment, and military technology. Russia also enjoys privileged access (along with China) to Iran's Southern Pars gas fields.... Second, Iran is still a powerbroker in the Caspian oil trade; its position on the Caspian Sea, which is estimated to hold more than 10 billion tons of oil reserves, makes it an important and influential partner for Russia. Tehran has been extensively involved in coordinating transnational oil and gas deals, arranging transportation of exports with a number of regional states. Russia is in a position to use its good relations with Iran to challenge Washington's efforts to create new pipelines and foreign direct investment in the Caspian region. Iran has already proven an effective regional ally for Russia--in addition to cooperating on energy deals, Tehran has pointedly refrained from criticizing Moscow's Chechnya policy and has held strategic meetings with Moscow on the Taliban.  Finally, Russian nuclear cooperation with Iran provides the Kremlin with leverage over the United States. Moscow remains guarded against Western advances into its "near abroad," and has fought to keep neighboring states from being brought into the NATO fold. By dangling the Iranian nuclear issue in front of the United States, Moscow may believe it has a means to maintain regional dominance. Russian leaders have already extracted concessions from Washington, as the United States recently altered plans for missile defense in Poland and the Czech Republic. Yielding on the Iran issue would strip Moscow of the ability to coerce the United States and damage its own ability to reassert local influence.  

The first reason is both sufficient and compelling; I'm not entirely sure I buy the latter two.  Iran's nuclear program gave the United States just cause to insert missile programs into Eastern Europe in the first place -- so Iran's nuclear ambitions have caused as many problems for Russia's near abroad as they have ameliorated.  As for the Caspian argument, it's not clear how a Russian-Iranian axis challenges U.S. energy diplomacy in the region.  If anything, that axis probably incentivizes the smaller energy producers to find a viable pipeline alternative that flows outside of Moscow and Tehran's orbit. 

That said, the economic interest argument is pretty powerful.  So, does this mean sanctions would be fruitless?  Not necessarily.  The paradox about economic sanctions is that although allies are more reluctant to coerce each other, they are also more successful once they make the decision to coerce.  At the same time, successful sanction efforts almost always end at the threat stage.  So if Russia ever signaled that it would seriously contemplate a cut-off in bilateral exchange, the Iranians would be likely to concede before implementation. 

This is the outcome the Russians would prefer the most -- a mild threat from the P5 + 1 prods Tehran into taking just enough action to avoid further isolation, and any further implementation of sanctions.   

But I could be wrong.  Persuade me in the comments. 

So, how should you interpret the first round of P5 +1 negotiations with Iran that took place yesterday? 

The hard-working staff here at drezner.foreignpolicy.com would never want its readers to view material outside their ideological comfort zone -- that would be crazy talk.  Therefore, please go down this list of different ideological approaches to Iran and read only the one that fits you. 

Liberal internationalism:  An excellent first round of talks.  At a minimum, the Iranian pledge to permit IAEA inspectors into its Qom facility, and the agreement to have fuel encriched outside of Iran, help to lessen fears of a breakout capability.  This shows how a multilateral approach, linked to the threat of sanctions, can successfully bring Iran into a cooperative relationship with the West.

Neoconservatism:  These talks were a feckless and futile exercise.  Iran agreed "in principle" -- which means that it will likely not honor its pledges. This also covers part of the uranium that we know about, and only the facilities that we know about.  Anyone who thinks that this lying, odious, anti-Semitic regime is showing all of its cards on the nuclear question is deluding themselves.  The only thing these talks will accomplish is sapping the will of Americans to use any means necessary to overthrow the regime. 

Realism:  Iran's concessions reinforce the point that this regime a perfectly rational actor that is worthy of even deeper engagement.  We still have no evidence that Iran is trying to develop nuclear weapons, so we should not go looking for red herrings that do not exist.  A deal can be made with this government once we are able to ignore how its rulers treats its own citizenry.  Any failure from here on in is entirely the fault of Israel and the Israel Lobby in the United States. 

So, did I miss anything? 

You know how so many in the blogosphere bitch and moan about the ability of neoconservatives to get their policy proposals published even after screwing up on Iraq? 

I'm kind of curious how these people feel about Flynt Leverett and Hillary Mann Leverett's op-ed in the New York Times today about Iran.  I mean, this is a scant few months after they served as apologists for Mahmoud Ahmadinejad after the controversial June election.  I guess the Leveretts know Gwen Pollard well. 

Others can debate whether the Leveretts deserve the prime real estate on the NYT op-ed page.  I'd like to focus on the fact that the op-ed itself makes no f***ing sense whatsoever. 

Let's take a look at it, shall we?

[T]he meeting on Thursday in Geneva of the United Nations Security Council’s five permanent members and Germany with Iran (the “five plus one” talks) will not be an occasion for strategic discussion but for delivering an ultimatum: Iran will have to agree to pre-emptive limitations on its nuclear program or face what Secretary of State Hillary Clinton calls “crippling” sanctions.

However, based on conversations we’ve had in recent days with senior Iranian officials — including President Mahmoud Ahmadinejad — we believe it is highly unlikely Iran will accept this ultimatum.

Oh, wow... senior Iranian officials told the Leveretts that they would not concede?  Well, I'd definitely take that at face value.  I'm sure these were the same people who told the Leveretts that Ahmadinejad was the legitimate victor back in June.  Clearly, these are reliable sources with zero incentive to dissemble to regime-friendly pundits in the United States.  And it's not like they have anything to hide.  Oh, wait....

 American officials tend to play down Iranian concerns about American intentions, citing public messages from President Obama to Ayatollah Ali Khamenei, Iran’s supreme leader, as proof of the administration’s diplomatic seriousness. But Tehran saw these messages as attempts to circumvent Iran’s president — another iteration, in a pattern dating from Ronald Reagan’s Iran-Contra scandal, of American administrations trying to create channels to Iranian “moderates” rather than dealing with the Islamic Republic as a system.

Wow again.  See, I would view these exchanges with Khamenei as attempts to talk to the person with actual control over Iran's nuclear program, as opposed to the guy who rants on and on about how the Holocaust was just a big myth. 

Indeed, the Obama administration is "dealing with the Islamic Republic as a system" -- and they are trying to talk to the people with genuine foreign policy power.  The Leveretts, on the other hand, seem to be convinced that the only way to talk with Iran is through Ahmadinejad. 

Unfortunately, the Obama administration was enticed by the prospect of regime-toppling instability in the aftermath of Iran’s presidential election this summer. But compared to past upheavals in the Islamic Republic’s 30-year history — the forced exile of a president, the assassination of another, the eight-year war with Iraq and the precipitous replacement of Ayatollah Khomeini’s first designated successor, Ayatollah Hussein Ali Montazeri, with Ayatollah Khamenei — the controversy over this year’s election was hardly a cataclysmic event.

Seriously, how did this paragraph get past the op-ed editors?  First of all, beyond a rhetorical flourish or two and asking Twitter to hold off on their scheduled maintenance, what exactly did the Obama administration do to foment regime-toppling instability?  Second, if the largest street demonstrations since the 1979 revolution don't qualify as a big event, what would convince the Leveretts of the import of the June election?  More YouTube videos?  Hand puppets? 

Instead of pushing the falsehood that sanctions will give America leverage in Iranian decision-making — a strategy that will end either in frustration or war — the administration should seek a strategic realignment with Iran as thoroughgoing as that effected by Nixon with China. This would require Washington to take steps, up front, to assure Tehran that rapprochement would serve Iran’s strategic needs.

On that basis, America and Iran would forge a comprehensive framework for security as well as economic cooperation — something that Washington has never allowed the five-plus-one group to propose. Within that framework, the international community would work with Iran to develop its civil nuclear program, including fuel cycle activities on Iranian soil, in a transparent manner rather than demanding that Tehran prove a negative — that it’s not developing weapons. A cooperative approach would not demonize Iran for political relationships with Hamas and Hezbollah, but would elicit Tehran’s commitment to work toward peaceful resolutions of regional conflicts.

This seems as propitious a moment as any to cave to popular demand that I articulate some thoughts on the sanctions question with regard to Iran.  I would expect some somewhat more utility in the sanctions process than the Leveretts.  If the U.S. can foster cooperation among the P5 + 1, and the Iranians see the extent of this cooperation, then I think they'd be willing to deal.  That's not an easy proposition to pull off, and would require both diplomatic skill and will.  That does not mean it should't be tried, however.  Even the effort to build momentum in the Security Council might prompt serious bargaining from the Iranians. 

I would also like to know how the Iranian opposition feels about sanctions.  If they reject them as a policy tool, well, that's a good argument against their imposition.  On the other hand, if this is a replay of South Africa, then that's something else to consider. 

One final point -- the analogy with Nixon's opening to China makes zero sense in the current context.  Nixon was trying to outflank the Soviet Union during the Cold War by cozying up to their most powerful bordering state.  What the Leveretts seem to be proposing is a multilateral move to bring Iran in from the cold -- which benefits Russia and China far more than it benefits the United States.  In other words, I'm not sure how a Nixon strategy works in the P5 + 1 framework. 

I suppose that the Obama administration could attempt secret shuttle diplomacy with Iran to outflank Moscow and Beijing.  Such a gambit would infuriate our European allies and push Israel into panicking, however -- and I'm not sure that's worth whatever strategic gains would be had by a rapprochement with the regime in Tehran. 

So, to review, I give the Leverett op-ed an "I" -- for being inchoate, inconsistent, and idiotic. 

The Financial Times' Simeon Kerr and Harvey Morris report on one of those stories that the Bush administration would have killed for about, oh, seven years ago: 

The United Arab Emirates has seized a ship secretly carrying embargoed North Korean arms to Iran, say diplomats.

The interception comes at a sensitive time. North Korea has invited the US for bilateral talks on nuclear issues and the UN Security Council’s western members are pressing for greater Iranian co-operation over its nuclear programme.

The UAE has reported the seizure of the vessel to the UN sanctions committee responsible for vetting the implementation of measures, including an arms embargo, imposed against North Korea under Security Council resolution 1874, according to diplomats in New York. The committee, chaired by Turkey, has made no formal announcement about the case.

Diplomats at the UN identified the vessel as the Bahamian-flagged ANL-Australia. The vessel was seized some weeks ago. The UN sanctions committee has written to the Iranian and North Korean governments pointing out that the shipment puts them in violation of UN resolution 1974.

The authorities seized “military components”, but the vessel has since departed, a person familiar with UAE thinking said. The seizure took place in the UAE, but not the shipping hub of Dubai, the person added.

So, in the past two years, North Korea has been linked to arms build-ups in Syria, Myanmar, and Iran. 

Come to think of it, maybe it's not an Axis of Evil so much as North Korea desperately trying to export the one thing they make that has market value. 

Reports like these are actually good news, I suspect.  It suggests that the enhanced sanctions regime is making it tougher for North Korea to export its ilicit wares.  Which means that the status quo favors the other members of the Six-Party Talks more than it favors Pyongyang. 

Gosh, maybe there's something to this containment idea. 

UPDATE:  More info on the shipment itself here. 

In a legen -- wait for it -- dary blog post, Belle Waring mentioned the pony problem in public policy.  Namely, "an infallible way to improve any public policy wishes. You just wish for the thing, plus, wish that everyone would have their own pony!"

I bring this up because of David Sanger's New York Times story about the prospects of imposing a gasoline embargo on Iran:  

The Obama administration is talking with allies and Congress about the possibility of imposing an extreme economic sanction against Iran if it fails to respond to President Obama's offer to negotiate on its nuclear program: cutting off the country’s imports of gasoline and other refined oil products....

But enforcing what would amount to a gasoline embargo has long been considered risky and extremely difficult; it would require the participation of Russia and China, among others that profit from trade with Iran. Iran has threatened to respond by cutting off oil exports and closing shipping traffic through the Strait of Hormuz, at a moment that the world economy is highly vulnerable.

The rest of the story is kind of irrelevant -- because without China and Russia, this is just a theoretical exercise.  In fact, here's a good time-saver:  if you read any story about a gasoline embargo o Iran, just scan quickly and get to the part where the reporter explains how and why Russia and China would go along.  If it's not mentioned, the story is inconsequential. 

If you want China and Russia to agree to sanctions, should you wish for the free pony as well?  Here the growth of dissent in Iran complicates an already complicated picture.  I'm betting that Moscow and Beijing have observed the "Death to Russia!" and "Death to China!" chants among the protestors.  This is likely going to make them even more reluctant to do anything that undermines the current regime (even if this hurts their long-term interests).  Which a gasoline embargo would most certainly do. 

Do I think a gasoline embargo is a good idea?  Absolutely.  Do I think it will happen?  No, I don't. 

UPDATE:  Spencer Ackerman reacts the same way I do.  The Weekly Standard's Michael Goldfarb is more optimistic. 

In the past 24 hours, there's been some interesting stuff coming out on both North Korea and Israel. 

On the North Korea issue, Bob Gates' chat with an FT reporter is worth reading just to savor the man's obvious efforts to signal to the North Koreans that they can't control the agenda.  However, Mark Landler and David Sanger's New York Times story today suggests that China is thinking about putting the economic and financial hurt on North Korea. 

Meanwhile, the United States and Israel appear to be at loggerheads on the question of West Bank settlements.  This is particularly interesting: 

[T]he tenor of Mrs. Clinton’s comments Wednesday indicated to some analysts that the Obama administration was unlikely to budge from its position, even at the risk of putting Mr. Netanyahu’s government into jeopardy.

“She is stripping away whatever nuance, or whatever fig leaf, that would have allowed a deeply ideological government to make a settlement deal that is politically acceptable at home,” said Aaron David Miller, a public policy analyst at the Woodrow Wilson International Center for Scholars. “They’ve concluded, ‘We’re going to force a change in behavior.’”

Within the Israeli government, however, there is a consensus that the ever-growing settler population must be accommodated.

No one is talking about sanctions just yet on Israel, but the historical precedent here is telling.  The last time the U.S. sanctioned Israel was in 1991 on the question of housing settlements.  The eventual result was the fall of the Yitzhak Shamir government. 

So China is contemplating sanctions against North Korea, and the United States a step away from doing the same thing vis-a-vis Israel.  This highlights a cruel irony when it comes to the use of economic pressure -- it works on your friends a lot better than it does against your foes. 

[I see where this is going.  Stop it!--ed.]  Of course, countries are understandably more reluctant to pressure their allies than their adversaries.  [I'm warning you!--ed.]  Why, it's almost like there's a paradox when it comes to economic sanctions.  [All right, that's it, this ridiculously self-promotional blog post is over!!--ed.]

UPDATE:  Ed Morse and Michael Makovsky have an excellent essay in The New Republic on the prospects of sanctioning Iran. 

By Daniel W. Drezner

I think the Obama administration has come up with a novel way of dealing with the North Koreans -- get everyone to talk about something else. 

Half-seriously, this is not a bad idea, because I'm not sure that anything else is going to work better (beyond my modest Britney Spears proposal).  For this decade, the following facts have held: 

1. North Korea wants to be able to trade its nuclear program for security guarantees and cash -- and then be able to do it again a few years later.
2. The leadership in Pyongyang is perfectly willing to starve its own population rather than concede a smidgen of autonomy.
3. No one is entirely sure about the internal politics of the DPRK elite.  This includes China, by the way. 
4. None of the actors in the region want North Korea to collapse.  China and Russia likes the buffer, Seoul doesn't want to pony up the cash for reunification, and Japan (and China) doesn't want a unified Korean peninsula. 
5. None of the actors in the region really want North Korea to proliferate either, but that's less important than a collapsing North Korea.  Proliferation is Somebody Else's Problem -- i.e., the Middle East rather than Northeast Asia. 
6. So, oddly enough, the ideal short-term solution for the region is for the continued existence of the DPRK regime, the absence of any new nuclear activity, and some kid of "strategic ambiguity" regarding North Korea's nuclear status. 
7. The alternatives to the repeated short-term carrot strategy are even less appealing.  There is no viable military option unless everyone is comfortable with the destruction of Seoul; there is no viable sanctions option unless China decides to cut off the energy tap, and they'll only do this if they're sure it won't lead to a stream of North Korea refugees entering Manchuria. 

The one thing that seems different this time around is that North Korea is really pulling out the stops this time to strip away the "pleasing illusion" that the U.N. Security Council will do something.  Paradoxically, this might actually goad China and Russia into doing something -- sanctions that might increase the likelihood of a DPRK collapse but also increase the likelihood of Pyongyang altering its behavior before that happens. 

If I, rather than my boss, were advising the Obama administration on this issue, the one other deliverable I would aim for in response to this latest provocation would be to get China to join the Proliferation Security Initiative.  China has resisted this for a whole bunch of reasons unrelated to North Korea.  If Beijing were to reverse course, it would make it much easier to engage in interdiction activities along North Korea's coast.  It would also signal to Pyongyang that, yes, there actually are some serious costs to thumbing one's nose at the U.N. Security Council.   

Am I missing anything?   

Two months after Foreign Policy revamped its website, Foreign Affairs has done something similar.  No blogs, but a jazzy new website.   

One big change is that it's now at foreignaffairs.com.  Until recently, their website was only located at foreignaffairs.org.  If you went to foreignaffairs.com, you arrived at a website that... well, how to put this.... interpreted the words "foreign affairs" to mean something involving attractive, heavly made-up Asian women.  [Really, he only went to the site once, though!!--ed.]

Anyway, my little contribution to the new website is a reading list -- Five Things to Read About Economic Sanctions.  Go check it out.

Sanctions experts are encourgaged to post, in the comments, what they would have put on that list (I was limited to five books or essays).