Considering a U.S.-Iranian Deal

By George Friedman

Last week, I wrote on the strategic challenge Iran faces in its bid to shape a sphere of influence stretching from western Afghanistan to Beirut on the eastern Mediterranean coast. I also pointed out the limited options available to the United States and other Western powers to counter Iran.

One was increased efforts to block Iranian influence in Syria. The other was to consider a strategy of negotiation with Iran. In the past few days, we have seen hints of both.

Rebel Gains in Syria

The city of Zabadani in southwestern Syria reportedly has fallen into the hands of anti-regime forces. Though the city does not have much tactical value for the rebels, and the regime could well retake it, the event could have real significance. Up to this point, apart from media attention, the resistance to the regime of President Bashar al Assad has not proven particularly effective. It was certainly not able to take and hold territory, which is critical for any insurgency to have significance.

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Now that the rebels have taken Zabadani amid much fanfare -- even though it is not clear to what extent the city was ceded to their control, much less whether they will be able to hold it against Syrian military action -- a small bit of Syria now appears to be under rebel control. The longer they can hold it, the weaker al Assad will look and the more likely it becomes that regime opponents can create a provisional government on Syrian soil to rally around.

Zabadani also gives outside powers something to help defend, should they choose to do so. Intervening in a civil war against weak and diffused rebels is one thing. Attacking Syrian tanks moving to retake Zabadani is quite another. There are no indications that this is under consideration, but for the first time, there is the potential for a militarily viable target set for outside players acting on behalf of the rebels. The existence of that possibility might change the dynamic in Syria. When we take into account the atmospherics of the Arab League demands for a provisional government, some meaningful pressure might actually emerge.

From the Iranian point of view, this raises the risk that the sphere of influence Tehran is pursuing will be blocked by the fall of the al Assad regime. This would not pose a fundamental challenge to Iran, so long as its influence in Iraq remains intact, but it would represent a potential high-water mark in Iranian ambitions. It could open the door to recalculations in Tehran as to the limits of Iranian influence and the threat to their national security. I must not overstate this: Events in Syria have not gone that far, and Iran is hardly backed into a corner. Still, it is a reminder to Tehran that all might not go the Iranians' way.

A Possibility of Negotiations

It is in this context that the possibility of negotiations has arisen. The Iranians have claimed that the letter the U.S. administration sent to Iranian supreme leader Ayatollah Ali Khamenei that defined Iran's threats to Strait of Hormuz as a red line contained a second paragraph offering direct talks with Iran. After hesitation, the United States denied the offer of talks, but it did not deny it had sent a message to the Iranian leadership. The Iranians then claimed such an offer was made verbally to Tehran and not in the letter. Washington again was not categorical in its denial. On Friday, U.S. Secretary of State Hillary Clinton said during a meeting with the German foreign minister, "We do not seek conflict. We strongly believe the people of Iran deserve a better future. They can have that future, the country can be reintegrated into the global community ... when their government definitively turns away from pursuing nuclear weapons."

From our perspective, this is a critical idea. As we have said for several years, we do not see Iran as close to having a nuclear weapon. They may be close to being able to test a crude nuclear device under controlled circumstances (and we don't know this either), but the development of a deliverable nuclear weapon poses major challenges for Iran.

Moreover, while the Iranians may aspire to a deterrent via a viable nuclear weapons capability, we do not believe the Iranians see nuclear weapons as militarily useful. A few such weapons could devastate Israel, but Iran would be annihilated in retaliation. While the Iranians talk aggressively, historically they have acted cautiously. For Iran, nuclear weapons are far more valuable as a notional threat and bargaining chip than as something to be deployed. Indeed, the ideal situation is not quite having a weapon, and therefore not forcing anyone to act against them, but seeming close enough to be taken seriously. They certainly have achieved that.

The important question, therefore, is this: What would the United States offer if Iran made meaningful concessions on its nuclear program, and what would Iran want in return? In other words, forgetting the nuclear part of the equation, what did Hillary Clinton mean when she said that Iran can be reintegrated into the international community, and what would Iran actually want?

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Essay originally published at Stratfor.com.

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