Paul Pillar

No, Iran Isn't Destabilizing the Middle East

As the nuclear negotiations with Iran enter what may be their final lap, diehard opponents of any agreement with Tehran have been leaning more heavily than ever on the theme that Iran is a nasty actor in the Middle East intent on doing all manner of nefarious things in the region. Insofar as the theme is not just an effort to generate distaste for having any dealings with the Iranian regime and purports to have a connection with the nuclear agreement, the idea is that the sanctions relief that will be part of the agreement will give Iran more resources to do still more nefarious stuff in the region.

Several considerations invalidate this notion, just on the face of it, as a reason to oppose the nuclear agreement. The chief one is that if Iran really were intent on doing awful, destructive things in its neighborhood, that would be all the more reason to ensure it does not build a nuclear weapon—which is what the agreement being negotiated is all about.

Another consideration is that if the United States were to leave in place economic sanctions that supposedly were erected for reasons related to Iran's nuclear program, and to leave them in place to deny Iran resources to do other things, the United States would be telling not only Iran but also the rest of the world that the United States is a liar. The United States would have lied when it said that it had imposed these sanctions for the purpose of inducing concessions regarding Iran's nuclear policy. The damage to U.S. credibility whenever the United States attempts in the future to use sanctions to induce policy change should be obvious.

Interestingly, calls to keep current sanctions in place to deny funding for Iranian regional activities are coming from some of the same quarters that call for putting even more of an economic squeeze on Iran to get a "better deal". This position is contradictory. If the United States were to demonstrate that it is not going to remove existing sanctions in return for Iran's concessions on its nuclear program, the Iranians would have no reason to believe that still more concessions on their part would bring the removal of still more sanctions—and thus they would not make any more concessions.

An invalid assumption underlying the argument about freeing up resources is that the Iranians' regional policy is narrowly determined by how many rials they have in their bank account. This assumption contradicts, by the way, the assertion commonly made, again by some of the same quarters, that Iranian leaders are far from being green eyeshade types who do such careful calculations and instead are irrational religious fanatics who cannot be trusted with advanced technology let alone with a nuclear weapon. In any case, with Iran just as with other states, foreign policy is a function of many calculations of what is or is not in their national interest, and not just a matter of the available financial resources.

A related unwarranted assumption is each additional rial that does become available to the Iranians they will spend on regional shenanigans that we won't like. That assumption is never supported by any analysis; it just gets tossed into discussion to be taken for granted. If analysis is instead applied to the topic, a much different conclusion is reached; that Iran is far more likely to apply freed resources to domestic needs. This is a straightforward matter of political calculations and political survival, not only for President Rouhani but for other Iranian leaders who are acutely aware of the demands and expectations of the Iranian people in this regard.

But set aside for the moment all the logical inconsistencies and other reasons to reject the notion of an Iranian regional marauder as a reason to oppose the nuclear agreement. Focus instead on the image of an Iran whose current regional policy supposedly is already an assortment of destructive activities. This image has become the kind of conventional wisdom that repeatedly gets invoked (even, in this instance, by supporters of the nuclear agreement) without any felt need by those who invoke it to provide any supporting facts or analysis because it is taken for granted that everyone “knows” it to be true. The references to the image are almost always vague and general, couched in terms of Iran supposedly “destabilizing” the Middle East or seeking to “dominate” it or exercise “hegemony” over it, or that it is “on the march” to take over the region. Often there are references to “terrorism” and “subversion” without anything more specific being offered. Often the names of conflict-ridden countries in the region are recited, but again without any specifics as to who is doing what in those countries.

To get away from such uselessly general accusations, ask: (1) what exactly is Iran doing in the Middle East that is of concern; and (2) how does what Iran is doing differ from what other states are doing in the same places? A careful comparison of this sort leads to the conclusion that Iran, contrary to the conventional wisdom, does not stand out in doing aggressive, destabilizing, or hegemonic things.

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