Tag Archives: Nuclear

Can a Nuclear Deal Lead to Turkish-Iranian Cooperation on Syria?

This article was originally published in Daily Sabah on February 23, 2015.

Nuclear negotiations between the P5+1 and Iran are currently facing congressional challenges and Israeli obstructionism. If the administration of U.S. President Barack Obama can withstand these pressures and reach a deal that leads to a détente between the U.S. and Iran, it will have implications for the regional balance of power as well as the ongoing conflicts in Syria and Iraq. As Turkey borders both of these countries and has a multitude of strategic and security interests regarding the nuclear negotiations, Turkish foreign policy will be impacted by Iran’s approach to Iraq and especially Syria.

Turkey has had a simultaneously competitive and cooperative relationship with Iran. For the past several years, Turkey and Iran have compartmentalized their disagreement over Syria for the sake of mutual energy interests. A potential nuclear deal could benefit Turkey through the reduction of regional tensions as well as increased bilateral trade. However, the Turkish-Iranian disagreement over Syria will not be easily overcome even if a deal is reached because Iran is unlikely to shy away from its regional ambitions as a result. If anything, a détente might embolden Iran in knowing that it will not be threatened militarily by the United States. At the same time, Iran may modify its threat perception and rethink its regional foreign policy posture in order to reduce the cost of investing in the regime of Syrian President Bashar Assad. If the latter becomes the case, Iran and Turkey may be able to reduce their differences over Syria, contributing to stability in the region in the long run.

The reaction of regional actors toward a potential deal will have a bearing on the actual benefits. Saudi Arabia will be unhappy as it sees itself in an existential struggle to counter Iran throughout the region. Only an Iranian effort to reach out to Saudi Arabia and change its policy in Syria and Iraq would ease the Saudis’ concerns, albeit to a limited extent. If the Saudi fears about Iran linger and Tehran does nothing to alleviate them in concrete terms, a nuclear deal may simply deepen their insecurity, as they would feel abandoned by the U.S. Continued Saudi-Iranian confrontation in the region would only worsen the prospects for a solution in Iraq and Syria.

Israel’s reaction to a potential deal will predictably be based on a “no deal is better than a bad deal” framework. Israeli Prime Minister Benjamin Netanyahu has been pressuring the Obama administration to demand harsher terms in the negotiations, and he will almost certainly oppose any kind of deal that allows Iran to retain its nuclear enrichment capabilities. The Obama administration has been pushing back against Israeli criticism by calling Netanyahu names in a not-so-diplomatic way, which also speaks to the administration’s anxiety about the potential for failure. It remains uncertain whether the deal will be acceptable to the newly Republican-dominated U.S. Congress or to Iranian Supreme Leader Ali Khamenei. Nevertheless, Israeli discontent over a possible deal will only add to regional tensions.

In addition to bolstering Obama’s non-proliferation agenda, a potential deal will have implications for Iran’s standing in the region. In 2010, Turkey, as a non-permanent member of the U.N. Security Council at the time, tried to help forge an agreement between the P5+1 and Iran. The Tehran Declaration was meant to be a confidence-building measure, but it was dismissed by the West based on the view that the agreement was part of an Iranian ploy to duck the impending sanctions resolution. Turkey’s efforts in 2010 were driven by its desire to engage with Iran and help integrate it into the international system. Its insistence on diplomacy as opposed to sanctions was motivated by Turkey’s interest in reducing regional tensions to allow for a stable and peaceful environment to pursue its business interests. These interests remain unchanged today and they can be the primary driver of cooperation with Iran.

Potential for cooperation, however, does not mean that Turkey and Iran will not compete for influence in the region. The Syrian conflict has proven to be a major sticking point in the Turkish-Iranian relationship. Iran continues to back the Syrian regime, and its support of its most important regional ally, Hezbollah, has been critical for Assad’s survival. President Recep Tayyip Erdoğan lamented recently that an understanding with Iran and Russia over Syria is critical for a political deal but has so far proved impossible. While a nuclear deal could initiate a conversation on Syria, it will not provide a resolution for the conflict, as Iran remains committed to the regime, which Turkey sees as the source of the problem.

There is an incentive for Iran and Turkey to cooperate on Syria, as both countries are faced with a huge burden from the fallout from the conflict. If they can identify issues they agree on, they can work toward an eventual resolution. One such agreement could be on the need to counter the Islamic State of Iraq and al-Sham (ISIS), though Turkey would place equal emphasis on the need for Assad’s departure. If Tehran were to agree on a political transition in Damascus, Turkey might be more amenable to cooperation with Iran against ISIS. This conversation would have to be extended to Iraq, where Iran can help Baghdad in drawing Sunni groups into the political system.

Turkey has shown time and again its ability to work with all political actors in the region. Despite the deep and arguably irreconcilable differences between Iran and Turkey on a variety of regional issues, the countries remain major players that can contribute to the resolution of the Syrian conflict and Iraq’s stability. For that to happen, Iran will need to move away from its narrow calculations about how to gain from the current conflicts in Iraq and Syria and instead adopt a more strategic, long-term vision for the region. Otherwise, Iran will find itself further apart from Turkey, engaged more in competition than cooperation.

For its part, Turkey needs to continue its efforts to find common ground with Iran over Syria. Although Iran seems bent on supporting Assad, Damascus has proven to be a heavy burden for Tehran. As a result, Iran has an incentive to stabilize Syria, though it will likely be maximalist in its demands in furthering its interests, such as keeping key regime figures in place during a potential transition and ensuring Hezbollah’s standing in Syria. A nuclear deal may help speed the opening of the Iranian economy to the outside world and improve Turkey’s economic ties and bilateral trade deficit with Iran if sanctions are lifted. The two sides may be able to build on improved economic relations in order to discuss regional political issues in a new light. There is no magic bullet for solving the Syrian and Iraqi crises, but a common understanding between Ankara and Tehran would go a long way in contributing to a solution.

What Does Turkey’s “No” Vote Mean?

This commentary originally appeared on insideIRAN.org a project of The Century Foundation

WASHINGTON – The United Nations Security Council (UNSC) passed the fourth round of sanctions on the Islamic Republic of Iran on June 9, 2010. The U.S. administration made the case that the main objective of Resolution 1929 was to “complement” the dual-track approach the UNSC is pursuing in preventing Iran from acquiring nuclear weapon capabilities. This approach would involve sanctions targeting specific institutions and individuals while keeping open the possibility of negotiations with Iran. Whether this approach would work with Iran remains a question, a concern shared by Brazil and Turkey, who have voted “no” at the Security Council.

Most analysts agree that another round of sanctions against Iran will not prevent Iran from pursuing its uranium enrichment activities. However, the U.S. administration argues that “smart sanctions” could bring about real results by targeting specific activities, institutions, and individuals suspected of contributing to the development of Iranian nuclear weapon capabilities. The resolution includes bans on nuclear and missile investments abroad, conventional arms, and ballistic missile capabilities, as well as the freezing of assets of specific individuals. It also calls for heightened sensitivity and “vigilance” by the states over the “suspected” cargo, financial activities of Iranian banks, companies, and the Islamic Revolutionary Guard Corps (IRGC).

The resolution comes at a time when the United States virtually has ignored the nuclear swap deal brokered by Turkey and Brazil in May. The administration argues that the deal was not comprehensive and did not address the main concerns of the international community. U.S. officials portrayed it as yet another attempt by Iran to stall the sanctions process and to divide the international community. As a result, instead of welcoming the deal and treating it as a true opportunity for engagement and dialogue with Iran, the United States chose to move forward with sanctions. Although the U.S. officials state that channels of negotiation are open, it will be difficult to convince Iranians that the sanctions are meant to contribute to “confidence-building” measures.

Turkey supports the peaceful use of nuclear energy and uranium enrichment, which is a right afforded to all signatories of the Non-Proliferation Treaty (NPT), of which Iran is a part. This is also reiterated in Resolution 1929, and the Obama administration has repeatedly reaffirmed Iran’s right to access “peaceful use of nuclear energy.” At the same time, Turkey repeatedly has made it clear that it is against Iran developing nuclear weapons. Turkey also recognizes that Iran has not fully cooperated with the international community over its nuclear program and has failed to meet its obligations to the International Atomic Energy Agency (IAEA).

If Turkey is in full agreement with the international community about the use of nuclear technology, why did it vote “no” in the Security Council? The main reason seems to be that Turkey believes sanctions could undermine the diplomacy track. Ankara was disappointed that the nuclear deal achieved with Brazil’s involvement was not given serious consideration as a confidence-building measure. Turkey realizes that Tehran may have agreed to a deal with Brazil and Turkey as a stall tactic and an attempt to divide the international community on the question of sanctions.

However, in the arrangement brokered by Turkey and Brazil, Iran has agreed for a uranium exchange for the first time, and this is the only concrete deal so far. Iran also met the deadline to submit its proposal to the IAEA. If the international community ignores the deal in favor of tougher sanctions, Turkey believes it will be very difficult, if not impossible, to bring Iran back to the negotiation table.

On the one hand, Turkey was concerned that voting “yes” would have seriously damaged Turkey’s integrity as a reliable negotiating partner and would alienate Iran even further. On the other hand, Turkey still shared concerns with the international community in regards to Iran’s nuclear program. As a result, while voting “no,” Turkey did not work against the resolution, and even encouraged countries such as Bosnia and Lebanon to make their own decisions instead of following Turkey. Turkey needed to stand behind the nuclear deal it helped reach to demonstrate its commitment to diplomacy.

Turkey believes that sanctions and military threats are counterproductive in achieving Iran’s full cooperation with the international community and that such measures will only reinforce Tehran’s defiance about its nuclear program by backing Iran up against the wall. Ankara worries that the prospect of a military action against Iran is a destabilizing factor for the region, similar to the invasion of Iraq. Isolating Iran will only exacerbate Iran’s suspicions about the sincerity of U.S. intentions, which would in turn kill any possibility of Iran’s full cooperation with the international community.

Critiques of Turkey’s recently energized foreign policy direction are framing the Iranian nuclear issue as a matter of Turkey’s abandonment of its traditionally Western-oriented alliances for newer yet more dangerous ones with its unstable Eastern neighbors. Turkish Prime Minister Erdoğan has been criticized for giving Iran “a way out” of its international obligations.

Such criticisms overlook and disregard Turkey’s perspective on its relations with its neighbors. Turkey aims to maintain good relations with its neighbors based on economic integration, political stability, and regional peace. Achieving a nuclear-free zone in the Middle East is one of the main goals of Turkey. In order to accomplish this, Turkey feels that it needs to base its foreign relations on diplomacy and dialogue instead of sanctions and military threats. The Turkish “no” vote at the UNSC needs to be understood as Turkey’s desire to show its commitment to diplomacy. In that sense, if the Obama administration wants to pursue the “dual-track” approach on Iran, it will have to demonstrate its commitment to the diplomacy track as much as it did to the sanctions track.

Kadir Ustun is the Research Coordinator at SETA Foundation, a Washington-based think tank.