Part 11

IRAN. Engaging Iran is problematic, especially given the state of the U.S.-Iranian relationship. Yet the United States and Iran cooperated in Afghanistan, and both sides should explore whether this model can be replicated in the case of Iraq.

Although Iran sees it in its interest to have the United States bogged down in Iraq, Iran's interests would not be served by a failure of U.S. policy in Iraq that led to chaos and the territorial disintegration of the Iraqi state. Iran's population is slightly more than 50 percent Persian, but it has a large Azeri minority (24 percent of the population) as well as Kurdish and Arab minorities. Worst-case scenarios in Iraq could inflame sectarian tensions within Iran, with serious consequences for Iranian national security interests.

Our limited contacts with Iran's government lead us to believe that its leaders are likely to say they will not participate in diplomatic efforts to support stability in Iraq. They attribute this reluctance to their belief that the United States seeks regime change in Iran.

Nevertheless, as one of Iraq's neighbors Iran should be asked to assume its responsibility to participate in the Support Group. An Iranian refusal to do so would demonstrate to Iraq and the rest of the world Iran's rejectionist attitude and approach, which could lead to its isolation. Further, Iran's refusal to cooperate on this matter would diminish its prospects of engaging with the United States in the broader dialogue it seeks.

RECOMMENDATION 10: The issue of Iran's nuclear programs should continue to be dealt with by the United Nations Security Council and its five permanent members (i.e., the United States, United Kingdom, France, Russia, and China) plus Germany.

RECOMMENDATION 11: Diplomatic efforts within the Support Group should seek to persuade Iran that it should take specific steps to improve the situation in Iraq.

Among steps Iran could usefully take are the following:

--Iran should stem the flow of equipment, technology, and training to any group resorting to violence in Iraq.

--Iran should make clear its support for the territorial integrity of Iraq as a unified state, as well as its respect for the sovereignty of Iraq and its government.

--Iran can use its influence, especially over Shia groups in Iraq, to encourage national reconciliation.

--Iran can also, in the right circumstances, help in the economic reconstruction of Iraq.

SYRIA. Although the U.S.-Syrian relationship is at a low point, both countries have important interests in the region that could be enhanced if they were able to establish some common ground on how to move forward. This approach worked effectively in the early 1990s. In this context, Syria's national interests in the Arab-Israeli dispute are important and can be brought into play.

Syria can make a major contribution to Iraq's stability in several ways. Accordingly, the Study Group recommends the following:

RECOMMENDATION 12: The United States and the Support Group should encourage and persuade Syria of the merit of such contributions as the following:

--Syria can control its border with Iraq to the maximum extent possible and work together with Iraqis on joint patrols on the border. Doing so will help stem the flow of funding, insurgents, and terrorists in and out of Iraq.

--Syria can establish hotlines to exchange information with the Iraqis.

--Syria can increase its political and economic cooperation with Iraq.

4. The Wider Regional Context

The United States will not be able to achieve its goals in the Middle East unless the United States deals directly with the Arab-Israeli conflict.

There must be a renewed and sustained commitment by the United States to a comprehensive Arab-Israeli peace on all fronts: Lebanon, Syria, and President Bush's June 2002 commitment to a two-state solution for Israel and Palestine. This commitment must include direct talks with, by, and between Israel, Lebanon, Palestinians (those who accept Israel's right to exist), and particularly Syria--which is the principal transit point for shipments of weapons to Hezbollah, and which supports radical Palestinian groups.

The United States does its ally Israel no favors in avoiding direct involvement to solve the Arab-Israeli conflict. For several reasons, we should act boldly:

--There is no military solution to this conflict.

--The vast majority of the Israeli body politic is tired of being a nation perpetually at war.

--No American administration--Democratic or Republican--will ever abandon Israel.

--Political engagement and dialogue are essential in the Arab-Israeli dispute because it is an axiom that when the political process breaks down there will be violence on the ground.

--The only basis on which peace can be achieved is that set forth in UN Security Council Resolutions 242 and 338 and in the principle of "land for peace."

--The only lasting and secure peace will be a negotiated peace such as Israel has achieved with Egypt and Jordan.

This effort would strongly support moderate Arab governments in the region, especially the democratically elected government of Lebanon, and the Palestinian Authority under President Mahmoud Abbas.