Editor’s Note:
The role of Iran looms large in developments in the Gulf and across the region and no understanding of US-Saudi relations would be complete without a solid understanding of the challenge posed by Tehran’s activities and intentions and how they play out in American Middle East policy. The Congressional Research Service recently released an excellent report titled, “Iran: U.S. Concerns and Policy Responses.” This comprehensive (non-partisan) document, authored by Dr. Kenneth Katzman, Middle East Affairs Specialist, comes to us at an opportune moment as Washington and Riyadh grapple with several major crises in the region, all of which include Iranian considerations, not to mention the imminent deadline for the P5+1 nuclear agreement talks in Vienna.
Today we are pleased to provide for your consideration the summary from “Iran: U.S. Concerns and Policy Responses,” as well as an excerpt talking about Iranian relations with its Gulf neighbors and a link to the complete report. These are followed by an extensive list of Congressional Research Service reports addressing Middle East affairs and U.S. foreign policy.
Iran: U.S. Concerns and Policy Responses
Kenneth Katzman
Congressional Research Service
June 30, 2014
Summary
A priority of U.S. policy has been to reduce the perceived threat posed by Iran to a broad range of U.S. interests. Before the issue of Iran’s uranium enrichment program emerged in 2002, U.S. officials had consistently identified Iran’s support for militant Middle East groups as a significant threat to U.S. interests and allies. The Obama Administration has orchestrated broad international economic pressure on Iran to try to compel it to verifiably demonstrate to the international community that its nuclear program is for purely peaceful purposes. That pressure harmed Iran’s economy and might have contributed to the June 2013 election of the relatively moderate Hassan Rouhani as president of Iran, who campaigned as an advocate of ending Iran’s international isolation. Subsequent multilateral talks with Iran produced an interim agreement (“Joint Plan of Action,” JPA) that halts the expansion of Iran’s nuclear program in exchange for modest sanctions relief. It runs from January 20–July 20, 2014, but can be extended for an additional six months. Talks on a “comprehensive solution” on Iran’s nuclear program began on February 20, 2014, and the fourth high-level round ended on June 20, 2014, with the parties reportedly still far apart on the core issue of the size and scope of Iran’s program to enrich uranium. The talks are to resume on July 2 and run continuously until the expiration of the JPA on July 20.
President of Iran Hassan Rouhani
Rouhani’s presidency also has improved prospects for an end to the 34 years of U.S.-Iran estrangement. On September 27, 2013, at the end of Rouhani’s visit to the U.N. General Assembly meetings in New York, President Obama and Rouhani spoke by phone—the first leadership level contacts since the 1979 Islamic revolution. The JPA and further nuclear talks have eased tensions somewhat between Iran and its neighbors in the Persian Gulf region, who are all allies of the United States. However, the Gulf states, Israel, and other regional states express concern that Iran’s re-integration into the region and the international community will give Iran additional political and economic resources to support pro-Iranian movements and regimes in the region. State Department reports on international terrorism, including the latest one for 2013, assert that Iran continues to provide funds and arms to a wide range of movements, including Lebanese Hezbollah, Hamas, the embattled government of Bashar Al Assad of Syria, Iraqi Shiite militias, and rebels in Yemen and Bahrain.
President Obama has maintained—both before and after the JPA was signed—that the option of U.S. military action against Iran’s nuclear facilities remains open. However, further U.S.—or
Israeli—discussion of military options against Iran is unlikely unless the JPA collapses or fails to translate into a comprehensive nuclear settlement. In line with a provision of the JPA that no new sanctions be imposed on Iran during the JPA period, the Administration has threatened to veto bills, including S. 1881, that would add sanctions on Iran—whether or not their provisions would take effect only after the JPA expires.
Rouhani’s unexpected election win—a result of a large turnout of reform-minded voters such as those who protested the 2009 election results—appeared to demonstrate that support for domestic reform remains strong. Iran’s judiciary remains in the hands of hardliners who continue to restrict social freedoms. However, some political prisoners have been released and some media restrictions have been eased since Rouhani took office. For further information, see CRS Report RS20871, Iran Sanctions, by Kenneth Katzman; and CRS Report R43333, Interim Agreement on Iran’s Nuclear Program, by Kenneth Katzman and Paul K. Kerr.
Excerpt
Foreign Policy: Relations with the Persian Gulf States
Most of the leaders of the Persian Gulf monarchy states (Gulf Cooperation Council, GCC: Saudi Arabia, Kuwait, Bahrain, Qatar, Oman, and the United Arab Emirates) are concerned about Iran’s influence and intentions in the Gulf and broader region. These states, all controlled by Sunni-led governments, are cooperating with U.S. policy toward Iran politically, economically, and militarily. Still, the GCC states often seek to lower tensions with Iran, and Qatar, Oman, UAE, and Kuwait welcomed visits by Iranian Foreign Minister Zarif and his aides subsequent to the November 2013 JPA agreement. The GCC countries reacted positively to the JPA, although experts say that the GCC states are concerned a comprehensive nuclear deal could lead to a U.S.-Iran rapprochement and possibly weaken the U.S. commitment to Gulf security.
Saudi Arabia. Iran and Saudi Arabia represent opposing poles of influence and interests in the region; Saudi Arabia sees itself as leader of the Sunni Muslim world and views Shiite Muslims, including those in eastern Saudi Arabia, as heretical. In speeches and statements, senior Saudi officials have criticized the Obama Administration’s engagement with the Rouhani government. However, apparently seeking to cooperate with the U.S. shift toward intensified diplomacy with Iran, in May 2014 the Saudi government announced it had invited Foreign Minister Zarif to visit. Iran has accepted the invitation, but the visit has not occurred, to date. Saudi alarm over Iranian influence in the Gulf was a major factor in the military intervention by Saudi Arabia on behalf of the Bahrain government in March 2011. The Saudis repeatedly criticize Iran for past actions, including inspiring violent demonstrations at some Hajj pilgrimages in Mecca in the 1980s and 1990s—which caused a break in relations from 1987 to 1991. The Saudis also often accuse Iran of stoking Shiite oppositionists in the Gulf, including within the Kingdom itself. Saudi leaders have threatened to try to acquire a nuclear weapon if Iran acquires.
Complete report: Iran: U.S. Concerns and Policy Responses
Note: Graphics added by SUSRIS.
Dr. Kenneth Katzman
Specialist in Middle East Affairs in the Foreign Affairs, Defense, and Trade Division, Congressional Research Service, Library of Congress
Kenneth Katzman has served in government and the private sector as an analyst in Persian Gulf affairs, with special emphasis on Iran and Iraq. In his current position, Dr. Katzman analyzes U.S. policy and legislation on the Persian Gulf region for members of Congress and their staffs. He also has written numerous articles in various outside publications, including a book entitled The Warriors of Islam: Iran’s Revolutionary Guard. During 1996, Dr. Katzman was assigned to the House International Relations Committee. He has spoken before several groups and appeared in numerous media outlets discussing his areas of specialty. These appearances include CNN, NBC Nightly News, Nightline, The News Hour with Jim Lehrer, MBC (Middle East Broadcasting Company), and Independent Television (London). Dr. Katzman holds a Ph.D. in political science from New York University.
Read more on this topic:
Iran Nuclear Deal – SUSRIS Special Section
Congressional Research Service Reports on the Middle East and the Arab World
Iran: U.S. Concerns and Policy Responses, June 30, 2014
Iraq: Politics, Governance, and Human Rights, January 6, 2014
Bahrain: Reform, Security, and U.S. Policy, January 6, 2014
Oman: Reform, Security, and U.S. Policy, December 27, 2013
Arab League Boycott of Israel, December 19, 2013
Kuwait: Security, Reform, and U.S. Policy, November 8, 2013
Iran: U.S. Concerns and Policy Responses, November 4, 2013
Israel: Background and U.S. Relations, November 1, 2013
The United Arab Emirates (UAE): Issues for U.S. Policy, October 17, 2013
Iran Sanctions, October 11, 2013
U.S. Foreign Aid to the Palestinians, September 30, 2013
Possible U.S. Intervention in Syria: Issues for Congress, September 12, 2013
Egypt in Crisis: Issues for Congress, September 12, 2013
Armed Conflict in Syria: U.S. and International Response, September 6, 2013
Syria: Overview of the Humanitarian Response, September 4, 2013
Egypt: Background and U.S. Relations, June 27, 2013
Turkey: Background and U.S. Relations, June 21, 2013
Egypt and the IMF: Overview and Issues for Congress, April 29, 2013
U.S. Foreign Aid to Israel, April 11, 2013
Jordan: Background and U.S. Relations, April 1, 2013
Israel: 2013 Elections Preview, January 8, 2013
Saudi Arabia: Background and U.S. Relations, November 27, 2012
Lebanon: Background and U.S. Policy, November 6, 2012
Yemen: Background and U.S. Relations, November 1, 2012
Israel: Possible Military Strike Against Iran’s Nuclear Facilities, September 28, 2012
The Palestinians: Background and U.S. Relations, August 17, 2012
Qatar: Background and U.S. Relations, June 6, 2012
Change in the Middle East: Implications for U.S. Policy, March 7, 2012
Lebanon and the Uprising in Syria: Issue for Congress, February 2, 2012
Iran’s Threat to the Strait of Hormuz, January 23, 2012
Palestinian Initiatives for 2011 at the United Nations, October 24, 2011
Iraq: Map Sources, August 15, 2011
Implications of Egypt’s Turmoil on Global Oil and Natural Gas Supply, May 4, 2011
Turkey-U.S. Defense Cooperation: Prospects and Challenges, April 8, 2011
Iraq’s Debt Relief: Procedure and Potential Implications for International Debt Relief, March 29, 2011
Middle East and North Africa Unrest: Implications for Oil and Natural Gas Markets, March 10, 2011
Lebanon: Background and U.S. Relations, February 1, 2011
Israel’s Offshore Natural Gas Discoveries Enhance Its Economic and Energy Outlook, January 31, 2011
U.S. Security Assistance to Lebanon, January 19, 2011
The Middle East: Selected Key Issues and Options for the 112th Congress, January 3, 2011
Hezbollah: Background and Issues for Congress, January 3, 2011
Hamas: Background and Issues for Congress, December 2, 2010
Iraqi Casualties: U.S. Military Forces and Iraqi Civilians, Police, and Security Forces, October 7, 2010
The Kurds in Post-Saddam Iraq, October 1, 2010
Iran-Iraq Relations, August 13, 2010
Israel’s Blockade of Gaza and the Mavi Marmara Incident, June 23, 2010
U.S. Foreign Assistance to the Middle East: Historical Background, Recent Trends, and the FY2011 Request, June 15, 2010
Iran’s Economic Conditions: U.S. Policy Issues, April 22, 2010
Israeli-Arab Negotiations: Background, Conflicts, and U.S. Policy, January 29, 2010
Iran: Regional Perspectives and U.S. Policy, January 13, 2010
Israel and the Palestinians: Prospects for a Two-State Solution, January 8, 2010
U.S. Security Assistance to the Palestinian Authority, January 8, 2010
Iraq: Oil and Gas Legislation, Revenue Sharing, and U.S. Policy, November 3, 2009
Iraq: Post-Saddam Governance and Security, October 28, 2009
Iraq: Regional Perspectives and U.S. Policy, October 6, 2009
Iraq: Reconstruction Assistance, August 7, 2009
Iraq: Former Regime Weapons Programs and Outstanding U.N. Issues, July 29, 2009
Iran’s 2009 Presidential Elections, July 6, 2009
Iraq: U.S. Casualties, updated June 26, 2009
Middle East Elections 2009: Lebanon, Iran, Afghanistan, and Iraq, May 18, 2009
Israel and Hamas: Conflict in Gaza (2008-2009), February 19, 2009
Iraqi Refugees and Internally Displaced Persons: A Deepening Humanitarian Crisis?, updated February 13, 2009
Iran: Ethnic and Religious Minorities, updated November 25, 2008
Turkey: Update on Crisis of Identity and Power, September 2, 2008
Turkey: Selected Foreign Policy Issues and U.S. Views, November 28, 2010
Iraqi Civilian Deaths Estimates, udpated August 27, 2008
U.S. Forces in Iraq, updated July 24, 2008
Iran: Profile of President Mahmoud Ahmadinejad, updated July 9, 2008
Iran’s Nuclear Program: Status, June 23, 2008
The “Red-Dead” Canal: Israeli-Arab Efforts to Restore the Dead Sea, May 13, 2008
Iraq: Tribal Structure, Social, and Political Activities, updated April 7, 2008
Congressional Oversight and Related Issues Concerning the Prospective Security Agreement Between the United States and Iraq, updated April 1, 2008
Operation Iraqi Freedom: Strategies, Approaches, Results, and Issues for Congress, March 28, 2008
The Egypt-Gaza Border and its Effect on Israeli-Egyptian Relations, February 1, 2008
The World Bank and Iran, updated January 28, 2008
Israeli-Palestinian Peace Process: The Annapolis Conference, December 7, 2007
Lebanon, updated November 23, 2007
U.S. Embassy in Iraq, updated October 10, 2007
Post-War Iraq: Foreign Contributions to Training, Peacekeeping, and Reconstruction, updated September 25, 2007
Saudi Arabia: Terrorist Financing Issues, updated September 14, 2007
Turkey’s 2007 Elections: Crisis of Identity and Power, updated July 11, 2007
Iraq: Milestones Since the Ouster of Saddam Hussein, updated June 19, 2007
International Reaction to the Palestinian Unity Government, May 9, 2007
Yemen: Current Conditions and U.S. Relations, updated January 4, 2007
Iraqi Police and Security Forces Casualty Estimates, updated August 29, 2008
Lebanon: The Israel-Hamas-Hezbollah Conflict, updated September 15, 2006
Iraqi Civilian, Police, and Security Forces Casualty Estimates, updated September 14, 2006
U.S. Democracy Promotion Policy in the Middle East: The Islamist Dilemma, June 15, 2006
Women in Iraq: Background and Issues for U.S. Policy, updated March 13, 2006
Palestinian President Mahmoud Abbas: Overview of Internal and External Challenges, updated March 9, 2006
Fatah and Hamas: the New Palestinian Factional Reality, March 3, 2006
Palestinian Elections, February 9, 2006
Iraq: Summary of U.S. Forces, updated November 28, 2005
The Coalition Provisional Authority (CPA): Origin, Characteristics, and Institutional Authorities, updated June 6, 2005
U.S. Treatment of Prisoners in Iraq: Selected Legal Issues, updated May 19, 2005
Palestinian Education and the Debate Over Textbooks, updated May 3, 2005
European Views and Policies Toward the Middle East, updated March 9, 2005
United States Aid to the Palestinians, March 4, 2005
The Broader Middle East and North Africa Initiative: An Overview, February 15, 2005
The Middle East Television Network: An Overview, updated February 9, 2005
The Middle East Partnership Initiative: An Overview, updated February 8, 2005
Middle East Free Trade Area: Progress Report, updated February 8, 2005
Israel’s Proposal to Withdraw from Gaza, updated February 2, 2005
Iraq: Debt Relief, updated March 11, 2005
Cyprus: Status of U.N. Negotiations, updated May 19, 2005
Iraq Oil: Reserves, Production, and Potential Revenues, updated April 13, 2005
Iraq’s New Security Forces: The Challenge of Sectarian and Ethnic Influences, March 25, 2005
Iraq: Frequently Asked Questions About Contracting, updated March 18, 2005
Iraq: Transition to Sovereignty, updated July 21, 2004
Iraq’s Trade with the World: Data and Analysis, updated September 23, 2004
Iraq War: Background and Issues Overview, April 22, 2003
Iraq: U.N. Inspections for Weapons of Mass Destruction, updated October 7, 2003
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Iraq: United Nations and Humanitarian Aid Organizations, updated November 6, 2006
Iraq: Weapons of Mass Destruction (WMD) Capable Missiles and Unmanned Aerial Vehicles (UAVs), updated March 25, 2003
Iraq: Weapons Programs, U.N. Requirements, and U.S. Policy, updated September 2, 2003
Iraq: Former and Recent Military Confrontations with the United States, updated October 16, 2002
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Iraq: The Turkish Factor, updated October 31, 2002
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The Persian Gulf States: Post-War Issues for U.S. Policy, 2003, July 14, 2003
Saudi Arabia: Terrorist Financing Issues, updated December 8, 2004
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Syria: U.S. Relations and Bilateral Issues, updated March 13, 2006
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