Professor Yonah Alexander
Director, Inter-University Center for Terrorism Studies
The rise of power in Iran of the Ayatollah Ruhollah Khomeini and the November 1979 seizure of the United States Embassy in Tehran and of some 60 American hostages by “revolutionary students” triggered a flurry of introspection in Washington concerning the policies which successive Administrations had followed with a country of enormous strategic and economic importance in the Middle East.
Among the questions that have been raised during that historical period were the following: What had gone wrong? Why had the United States failed to assess correctly the strength of the elements that brought down the Shah [Shahanshah, King of Kings, Mohammed Reza Pahlavi in January 1979, after a 37-year rule]? Why had the United States linked its fortunes so closely to those of the Shah in the first place? What did the national interests of the United States consist of as applied to Iran? What were the full implications of the transformation of Iran from a friendly ally to a hostile adversary of the United States?
These and related issues were analyzed in a study on The United States and Iran: A Documentary History, co-edited by Yonah Alexander and Allan Nanes and published by the University Publications of America in 1980. This work was prepared in association with the World Power Studies Program of the Center for Strategic and International Studies at Georgetown University.
During the next 34 years, other research efforts have been undertaken, focusing on Iran’s strategic and tactical intentions, capabilities, and actions. For instance, Tehran’s expanding terrorism role was discussed within the framework of the study, Terrorism: As State-Sponsored of Covert Warfare, co-authored by Ray S. Cline and Yonah Alexander and published by Hero Books in 1986. This work was undertaken in cooperation with the Center of Strategic and International Studies of Georgetown University and prepared at the request of the Subcommittee on Security and Terrorism for the use of the Committee on the Judiciary of the United States Senate. This publication underscored the fact that the goal of psychological terror and physical violence employed by totalitarian dictatorships, like the Iranian regime, is to maintain control of their own people and to expand this kind of control over other regions and nations. In the face of Iran’s terrorism challenge, the United States, its friends and allies, particularly Israel, have developed a wide range of countermeasures. They consisted inter alia of intelligence, economic and security assistance, political and diplomatic pressures, economic sanctions, clandestine counter-terrorism infiltrations, and overt military operations.
Despite these activities, Tehran continued to resort to terrorism at home and abroad. Additionally, Iran’s apparent vision of a country becoming the dominant power in the Middle East had led its leadership to develop a nuclear program in open defiance of United Nations resolutions. In this connection, the Inter-University Center for Terrorism Studies (IUCTS, a consortium of universities and think tanks operating in over 40 countries) had conducted a major research project resulting in the release of a study on The New Iranian Leadership: Ahmadinejad, Nuclear Ambition, and the Middle East. This book, co-authored by Yonah Alexander and Milton Hoenig, was published by Praeger Security International in 2007. It documents Ahmadinejad’s background and rise to power and explains the structure of the Iranian Revolutionary government—the competing centers of power and the major players. The study then details the terrorist groups funded and armed by Iran, primarily Hizballah and Hamas. It also provides a comprehensive picture of Iran’s apparent aspirations to acquire nuclear weapons, as well as the related implications for regional and global security concerns.
Moreover, numerous seminars and conferences related to the multiple Iranian security challenges to the international community were held in the United States and abroad. For example, on December 6, 2011, a seminar was co-sponsored by the IUCTS, International Center for Terrorism Studies (ICTS) at Potomac Institute for Policy Studies, and the Inter-University Center for Legal Studies (IUCLS) at the International Law Institute. The topic was “Iran’s Nuclear Program: A Final Warning?” and held at Potomac Institute for Policy Studies in Arlington, VA. The event highlighted Tehran’s nuclear weapon program amidst the backdrop of an uncertain political reality in the Middle East. Moderated by Professor Yonah Alexander, a panel of experts included Dr. Leonard S. Spector (Executive Director, Washington, DC, Office, James Martin Center for Nonproliferation Studies, Monterrey Institute of International Studies); Dr. Christopher A. Ford (Senior Fellow and Director, Center for Technology and Global Security, Hudson Institute); Michael Eisenstadt (Director, Military and Security Studies Program, Washington Institute for Near East Policy); Guy Roberts (Former Deputy Assistant Secretary General for Weapons of Mass Destruction (WMD) Policy and Director, Nuclear Policy, Emerging Security Challenges Division, the North Atlantic Treaty Organization (NATO); and Professor Don Wallace, Jr. (Chairman, International Law Institute). Because of the relevance of this topic, a summary of this event follows.
Dr. Spector offered four main points: First, he warned that the West had only one to three years to counter Iran before it gained the ability to rapidly produce a small arsenal of nuclear warheads. Second, he stressed that although current measures to stop Iran from achieving this goal are often innovative and are being pressed aggressively by the United States and like- minded governments, they have not yet proven effective, and Iran continues to make progress toward acquiring a nuclear-weapon capability.
Third, he said, this apparent reality makes it necessary to escalate U.S. and international efforts both to pressure Iran to halt its sensitive nuclear activities and to prevent its further progress. Such escalation is likely to entail tougher sanctions against the Central Bank of Iran and, in all probability, an intensification of covert operations against Iran’s nuclear program. Citing comments by the then Secretary of Defense Leon Panetta, Dr. Spector noted that overt military action, while “on the table” in theory, appears to be “off the table,” as a practical matter, at least for now. But Panetta left the door open for covert actions. Some, such as “accidental” explosions at sensitive sites, Dr. Spector argued, might be as destructive as an air strike. He also noted that sanctions originally directed at the Iranian nuclear program had become so broad that they appear to be aimed increasingly at weakening the Iranian regime.
That brought Dr. Spector to his fourth point, which he referred to as “Operation Arab Spring.” Noting that the regime of Bashar Assad appears to be crumbling in Syria, he stressed that when it falls, possibly within the next six months, Iran will lose its only national ally in the region. This would not only reduce the risk of Iran fomenting a wider war in the Middle East in response to interventions to curb its nuclear program, but would also force the Iranian Revolutionary Government to focus its energies on what will certainly be growing domestic challenges to its survival – challenges that will take strength from the Syrian precedent. Indeed, Dr. Spector concluded, if one looks at the combination of what is happening in Syria and the broader sanctions being imposed to undermine the legitimacy of the current Iranian regime, overall U.S. “grand strategy” may well be to promote the overthrow of the mullahs once the Syrian domino has fallen.
The next speaker, Dr. Christopher A. Ford, discussed three distinct arguments against clandestine warfare and how he expected that U.S. officials might respond to those arguments in pondering the prospect of such a campaign. The first argument he addressed discussed the notion that clandestine warfare is illegal. Dr. Ford set the grounds for his argument acknowledging that both the United States and Israel have left overt military action on the table for addressing Iran’s nuclear program, which implies that a military offensive would be deemed legal by both actors. (Indeed, both nations have set a precedent of preemptive military strikes on rogue states’ nuclear weapon facilities as demonstrated in Iraq and Syria.) Dr. Ford argued that if preemptive action against an offensive weapons of mass destruction (WMD) program is an act of self defense and is a “legally available” option, then so also must be the “lesser-included” policy of covert war.
He also discussed the implications of a covert war, as compared to an overt military strike, through the prism of international humanitarian law. Traditional military strikes might be more effective than most covert means in damaging a nuclear program, but they might also produce more collateral damage and come at a higher geopolitical cost than covert strikes. Covert methods might thus be depicted as morally superior to “legal” military action, and certainly not inconsistent with law-of-war principles stressing the minimization of suffering.
Dr. Ford then discussed the “Caroline Case” of 1837, which provides a frequently-cited articulation of the legal precedent for preemptive warfare. The British viewpoint expressed in that episode – coupled with the parties’ difficulty in arriving at a common understanding of how to operationalize the agreed legal standard, which suggests the flexibility of the concept – arguably supports the idea that it is justifiable to engage in anticipatory self-defense against an assailant in the more modern context of emerging WMD threats. Dr. Ford then suggested that U.S. officials might find a further ground for a campaign against Iran because Tehran is passively and directly supporting terrorism, going so far as aiding and abetting al-Qa’ida and the Taliban in their war against the United States. The United States has demonstrated that it believes itself to have legal authority for using force against al-Qa’ida and all its supporters, grounded in self-defense and the Authorization for Use of Military Force enacted on September 18, 2001, and this might be felt now to apply against Iran.
The next argument against covert action Dr. Ford addressed is the idea that covert warfare would provoke a bloodbath and that Iran is on a much more level playing field in this type of warfare. He agreed that Iran is adept at covert war, but noted that Iran already considers itself to be in such a conflict, and has been actively engaged in a covert war against the United States for the past three decades. Iran has supported and directed terror operations against the United States ranging from the Beirut bombing to the plot to assassinate the Saudi ambassador to the United States. From Iran’s perspective, no covert war taboo remains to be broken; the main question is what the United States will do on its side of the campaign.
The last idea that Dr. Ford discusses is that counter-proliferation is unlikely to stop Iran’s program. He acknowledges that this notion does indeed have some legitimacy, suggesting that disruptive tactics will not end the program but merely delay it. Though these tactics by themselves may prove to be unsuccessful, however, if coupled with other strategies to address the Iranian problem, they might provide enough time to stop the program by other means (e.g., regime change). Finally, Dr. Ford stresses the importance of making Iran policy with an eye not merely to counter-proliferation in Iran but also to the international nuclear nonproliferation regime as a whole. Even if Iran ultimately succeeds in developing nuclear weapons, U.S. officials might find it very important to make the cost of such a program to be as high as possible in order to serve as an example to other would-be nuclear proliferator states. This systemic rationale might provide a reason to justify a covert campaign against Iran for years to come.
Michael Eisenstadt then discussed the larger consequences of Iranian nuclear proliferation, comparing it to Pakistan, China, Russia, and North Korea and their practice of sharing weapon technology. In response to the threat posed by Iran, regional powers have significantly increased their conventional military forces as well as expressed interest in pursuing their own “civilian” nuclear programs. This regional militarization is inherently dangerous for stability and could have massive international implications. Iran wants to create the perception that its development of nuclear power is inevitable with the creation of covert facilities, the use of mixed messages and double entendres, and symbolic demonstrations, such as showing their missiles instead of nuclear weapons. Thus, the Iranians are already using their program as a deterrent against the United States and other regional opponents. Eisenstadt suggests that Iran’s other option is to create all of the necessary infrastructure for an atomic weapon without making the bomb itself. He suggests that at the moment Iran might not have the capability to create a weapon, but if they stockpile enriched uranium and delivery systems, then years down the road they can make one rapidly if need be. Ultimately, Iran would not have invested this much energy and capital as well as such faced harsh sanctions if they were not bent on creating nuclear weapons at some point. Eisenstadt believes that U.S. policy towards Iran needs to be reset in order for the United States to rebuild its credibility and force Iran to believe our threats. The recent attempt to engage in terrorism on American soil is an indication that Iran no longer fears U.S. military retribution.
Guy Roberts, the next speaker, explained that the United States is already at war with Iran, from Iran’s involvement with Hizballah to the Quds Force activities in Iraq and Afghanistan. As a result, covert war should continue, but overt war is also a perfectly viable option. Iran is moving deeper into South America, specifically Venezuela and Bolivia. Thus, the United States needs to be more assertive to stop Iran’s global spread. The United States needs to address every facet of any potential Iranian offense and show Iran the true cost of its nuclear program. If the United States and NATO become more assertive and aggressive, then Iran would be forced to see the west’s threats as credible and possibly end their program. The European Union and NATO also need to present Iran with incentives to stop their nuclear weapons program. The carrot and stick approach must be fully utilized to ensure the security of NATO members, especially Turkey which is vulnerable to Iranian hostility. Roberts suggests that the United States and NATO may have to demonstrate the “teeth to our bite” if Iran continues to develop its weapons program. He believes the region needs a strong military commitment to ensure stability and act as a deterrent to other nations who may attempt to proliferate. Ultimately, this commitment could lead to a potential WMD free zone in the Middle East, which Roberts believes to be the best scenario for future stability and security.
Professor Don Wallace, Jr., closed the individual presentation portion of the seminar. He agreed with many of the speakers that, apart from the specific challenge of Iran, the viability of the Nonproliferation Treaty must be ensured. He believes the Iranians to be an extremely proud and ambitious people, so even if there were regime change, a new regime may not stop their attempts to build a nuclear weapon. In his view, co-existing with a nuclear-armed Iran is a scenario that is completely unacceptable.
Indeed, the foregoing insights discussed three years ago do provide a useful context to the latest seminar on “Tehran’s Bomb Challenge: Crossroads, Roadblocks, and Roadmaps to Rapproachment?” held on December 5, 2013, at Potomac Institute for Policy Studies. This event, moderated by Professor Yonah Alexander, consisted of a panel with Bijan R. Kian (highest ranking Iranian-American to serve two U.S. presidents, held other careers in both business and a former Senior Fellow, Naval Postgraduate School); Ambassador Noam Katz (former
Dr. Anthony Fainberg (former Federal Aviation Administration (FAA) Director of Office of Policy and Planning for Aviation Security and
currently consultant for the Institute for Defense Analyses), and Dr. Emanuele Ottolenghi (Senior Fellow at the Foundation for Defense of Democracies and the author of The Pasdaran: Inside Iran’s Islamic Revolutionary Guards Corps.).
As this report goes to press, several developments related to Iran during January-March 2014 are noteworthy:
First, Saudi Arabia provided the Lebanese army a 3 billion dollar grant to counter Hizballah, Iran’s proxy.
Second, the al-Qa’ida-linked Abdullah Azzam Brigades claimed responsibility for twin suicide bombings targeting the Iranian Cultural Center in Beirut in retaliation to Hizballah and Tehran’s role in the Syrian war.
Third, Iran reported that it perfected multiple-warhead, medium-range ballistic missiles designed specifically to attack American targets. It also declared that the West “cannot entertain illusions” of Tehran completely ending its enrichment program.
Fourth, the Israeli Navy seized the Klos-C, sailing under a Panamanian flag, in the Red Sea, off the coast of Sudan. The ship was carrying dozens of M-302 rockets intended for the Islamic Jihad in Gaza. This “arms export” operation was coordinated by Iran.
Ambassador of Israel to Nigeria and Ghana and currently Minister of Public Diplomacy at the
?Israeli Embassy in Washington);
?And fifth, the U.S. Congress in bipartisan letters to President Obama asserted that in whatever a final agreement with Iran, the Islamic Republic must not retain any capability to pursue a nuclear weapon.
Finally, an appreciation is due to Michael S. Swetnam (Chief Executive Officer and Chairman, Potomac Institute for Policy Studies) and Professor Don Wallace, Jr. (Chairman, International Law Institute) who participated actively at the December 5, 2013, seminar. Additionally, the research background for this report was provided by the Winter 2013 and Spring 2014 team of graduate and undergraduate interns coordinated by Sharon Layani (University of Michigan). The team included James Nusse (The George Washington University), Michael Klement (University of Denver), Sheila Davis (Duquense University), William Docimo (London School of Economics), Stephanie Rieger (University of Wisconsin), David Wiese (University of Exeter), Kai Huntamer (University of California, Los Angeles), Courtney Van Wagner (University of Georgia), Garth Keffer (University of California, Davis), Roxanne Oroxom (University of Maryland), John Jermyn (University at Albany, the State University of New York), and G. Genghis Hallsby (University of Iowa). Mary Ann Culver prepared the manuscript for publication. All these individuals deserve special gratitude for their efficient support.