Senior U.S. officials have welcomed signals indicating a conciliatory shift in Iran’s foreign policy. “What’s different about President [Hassan] Rouhani is not simply some matter of personality,” a senior administration official said in response to a question about Rouhani’s address to the United Nations. The difference is that Rouhani was “elected expressly on a mandate to pursue a more moderate foreign policy and to achieve a nuclear deal,” the official told the press on September 24.
The Obama administration proposed an informal meeting of the U.S. president and his Iranian counterpart on the U.N. General Assembly sidelines. But President Rouhani told CNN that the two sides “didn’t have sufficient time really coordinate the meeting.” Meeting with U.S. officials is a “very sensitive subject,” Rouhani told a group of American editors and columnists from top news organizations. “We have not talked at that level for 35 years. We must take these steps carefully,” he said on September 25.
The Obama administration is trying to demonstrate openness “to any type of negotiation,” said a U.S. official in one of two briefings on Iran and the U.N. General Assembly. In a separate statement, a senior State Department official expressed hope that Iran can “chart a path forward” with the world’s six major powers — the United States, Britain, China, France, Germany and Russia. “We are looking forward to having the political directors meet - on a date to be scheduled in October,” said the official. The following are excerpts from White House and State Department press releases.
Senior State Department Official
Sept. 24, 2013
President Obama and Secretary Kerry have long supported an effort to engage the Iranians through direct negotiations, including bilateral discussion in coordination with the P5+1 process, and they believe it is worth testing the potential for a new opening with new leadership in Iran. The President has asked Secretary Kerry to help play a leading role as we determine path forward.
But actions speak louder than words, and the steps taken by the Iranians in the weeks ahead to show they are serious will determine how successful these efforts will be and how long they will take.
While we do not anticipate that any issues will be resolved later this week during the P5+1 meeting that EU High Representative Ashton has organized, we are hopeful that we can continue to chart a path forward. We have had a number of communications with Iran over time and we are looking forward to having the political directors meet - on a date to be scheduled in October - for substantive discussions.
Senior Obama Administration Officials
Sept. 24, 2013 at 5:21 P.M.
SENIOR ADMINISTRATION OFFICIAL: Well, first, let me step back and -- we believe that the new Iranian government under President Rouhani does present an opportunity to make progress on a diplomatic negotiation; that they’ve indicated a seriousness that we had not seen under the previous government. And it’s precisely because of that that Secretary Kerry is going to be meeting with the P5-plus-1 and Foreign Minister Zarif, which is a uniquely high-level meeting for the United States and Iran to be participating in together.
We indicated to the Iranians the same thing privately that we said publicly, which is that President Obama is open to a discussion with his Iranian counterpart. We did not intend to have a formal bilateral meeting and negotiation of any kind. This would have rather been them having a few minutes to have a discussion on the margins of the U.N. General Assembly. That was done at the staff level directly with the Iranians, so not through any intermediary. Particularly here in New York, it’s not difficult to communicate directly to the Iranians, as they’re coming to UNGA.
In terms of complications, I think our assessment is while President Rouhani has been elected with a mandate to pursue a more moderate foreign policy towards the West and to pursue negotiations -- in part to achieve sanctions relief -- the issue of the relationship between the United States and Iran is incredibly controversial within Iran. You heard the President speak to it today -- the decades of mistrust between our countries. And I think that from the Iranian side, for them it was just too difficult for them to move forward with that type of encounter at the presidential level, at this juncture. So we’re going to continue the negotiating track through our foreign ministers.
QUESTION: When did these conversations begin? And when did you guys get final word that it wouldn’t happen? Was it before the President addressed the Assembly this morning, or after?
SENIOR ADMINISTRATION OFFICIAL: Well, I think -- we’ve been having these contacts, I’d just say, while we’ve been here in New York. Again, I think it’s important to note we never would have contemplated any kind of formal bilateral meeting, but were open to an encounter discussion on the margins. It became apparent that that was not going to happen today after the President’s remarks, because that’s the window of time when he was going to be over at the U.N.
SENIOR ADMINISTRATION OFFICIAL: Well, I think -- we’ve been having these contacts, I’d just say, while we’ve been here in New York. Again, I think it’s important to note we never would have contemplated any kind of formal bilateral meeting, but were open to an encounter discussion on the margins. It became apparent that that was not going to happen today after the President’s remarks, because that’s the window of time when he was going to be over at the U.N.
I’d also underscore -- since we came into office, one of the reasons that we’ve been able to maintain international unity among the P5-plus-1 and other countries, and build the sanctions regime that we have in place, is because the United States has indicated our openness to diplomacy with Iran, so that the issue in play is not whether the United States is being recalcitrant in refusing to negotiate, but whether the Iranians will do so.
So I think it’s important for us to continue to demonstrate to the world that even as we see positive indicators from President Rouhani, that those words needs to be followed by actions. And there is still clearly need to do more work in order to create the basis for not just a negotiation, but the type of encounter that we were contemplating today…
Iran has a baseline set of positions that they have taken for a long time. I think what's different about President Rouhani is not simply some matter of personality. Clearly, he is not as bombastic as President Ahmadinejad. He does not say things that are quite as inflammatory as his predecessor. What's different is he was elected expressly on a mandate to pursue a more moderate foreign policy and to achieve a nuclear deal in order to achieve sanctions relief.
And this is the important point: This is not something that we believe happens out of goodwill; we believe that Iran has an imperative to improve its economy, because every single economic indicator is negative for them. The only way that they can improve the economy is through achieving sanctions relief. So that's the context that's changed. And so if President Rouhani is going to fulfill his commitments to improve the Iranian economy, he is going to need to achieve sanctions relief. That can only be achieved through a meaningful negotiation and agreement with the international community. So that's what I think gives us a sense that there's a basis for progress here.
So we'll have to continue to test whether those indications can be followed through with different negotiating positions from the Iranian side. That will take place in the P5-plus-1, starting on Thursday, when Secretary Kerry sits down with his P5 counterparts and Foreign Minister Zarif. But we would not expect them to shift their negotiating positions publicly on the front end of that process, just as we would not shift our commitment to maintain strong sanctions at the front end of any negotiation.
QUESTION: I’m curious, did you go into today thinking that there was a realistic chance that this encounter was going to happen?
SENIOR ADMINISTRATION OFFICIAL: I don’t think we had -- the interesting thing here is that it's difficult for the Iranians to take this step, given their history. And so I think we always recognize that. It was certainly not likely that they'd be able to get over that type of hurdle. What we're in a position of saying is we want to test this diplomatic process in every way we can. The substance will take place through the P5-plus-1 and through Secretary Kerry's efforts.
SENIOR ADMINISTRATION OFFICIAL: I don’t think we had -- the interesting thing here is that it's difficult for the Iranians to take this step, given their history. And so I think we always recognize that. It was certainly not likely that they'd be able to get over that type of hurdle. What we're in a position of saying is we want to test this diplomatic process in every way we can. The substance will take place through the P5-plus-1 and through Secretary Kerry's efforts.
At the same time, it's important for us to demonstrate that we're open to any type of negotiation. And, frankly, in our view, it's a demonstration of strength to say here's a new leader, he’s had some new things to say about this issue -- we're willing to hear him out. And we'll do that at any time. And the fact of the matter is we're going to continue to test this, because the achievement of an agreement on Iran's nuclear program, as the President said today, would address a significant national security concern in the United States and the world, and also potentially reduce tensions more broadly in the region.
So we felt it was important to test today. It was not something that we had any high degree of certainty would take place. But we're going to continue to put the test to the Iranians -- because, frankly, ultimately, the onus is on them to demonstrate that this is a real change in course and a real opening.
The only thing I’d note in that regard, though, is that just the foreign minister-level meeting on Thursday is a change. Iranian foreign ministers have not sat down with American secretaries of state in any context in a very long time. And, frankly, that’s where the substance of these negotiations will take place anyway.
QUESTION: Was there any concern that there was -- or some risks inherent in going ahead and doing the handshake?
SENIOR ADMINISTRATION OFFICIAL: Well, we’ve always rejected the premise that somehow just having an encounter with a foreign leader, even of an adversarial nation, is in any way a concession. And, frankly, the very fact that they were unwilling to go forward with it demonstrates that they were the ones who had discomfort with it in terms of dealing with their own complexities back home.
SENIOR ADMINISTRATION OFFICIAL: Well, we’ve always rejected the premise that somehow just having an encounter with a foreign leader, even of an adversarial nation, is in any way a concession. And, frankly, the very fact that they were unwilling to go forward with it demonstrates that they were the ones who had discomfort with it in terms of dealing with their own complexities back home.
I think that it’s important for us to demonstrate to the international community that even as we hear some new things from this leader, we need to stay united in the enforcement of sanctions and the insistence that Iran undertake meaningful commitments as a part of a negotiation and an agreement. They can't just say different things and expect to achieve a different result, unless they actually follow through with those actions.
On his speech, look, the President reiterated today our determination to prevent them from developing a nuclear weapon, identified a core interest in the prevention of nuclear proliferation, indicated that all options are available in terms of how we carry out that core interest and protect it. So I'm sure that's something that the Iranians would indicate has been something that they do not like in our rhetoric.
The fact of the matter is these issues are going to have to be dealt with through negotiation. And I think that we are moving with some urgency in that regard. The Iranians have a sense of urgency, given the fact that the only way their economy can improve is through sanctions relief. And I think the foreign minister's participation in these meetings indicates the seriousness with which they're approaching diplomacy.
At the same time, we have a sense of urgency in no small measure because of our concerns about Iran's nuclear program. And that's something that the Israelis frequently comment on and talk to us about. We're in close coordination with both Israel and our Gulf allies. I think they have recognition that it would be preferable to achieve a diplomatic resolution to the Iranian nuclear issue. They're skeptical of Iranian intentions -- which is understandable, given their history with Iran -- but we do see the potential for progress, certainly more so than we have in the last several years, since we had a negotiation with them in 2009. And we're going to test that in the weeks ahead.
SENIOR ADMINISTRATION OFFICIAL: On today, I think what we learned is, as the President said in his speech, we are overcoming a significant history of mistrust, and that there are hurdles to achieving a diplomatic resolution; and that Iran has to do more to demonstrate that some of the conciliatory words that we’ve seen out of President Rouhani will lead to a different position at the negotiating table and different actions in terms of their foreign policy.
Again, not surprising, but I think important to demonstrate to the world, that the U.S. is open. The U.S. is ready to negotiate, and that the Iranians need to come seriously to the table. And we hope that that will be the case beginning later this week, and we’ll continue to test this proposition going forward.
QUESTION: Can you help us understand better the complexities that you were sensing from them as to why they couldn’t come to the table? Did the Iranians ask for anything specifically of the U.S. to have a meeting? And also, just curious to get an understanding of why you're briefing all of us while Rouhani was speaking.
SENIOR ADMINISTRATION OFFICIAL: I wouldn’t read anything into the latter. We're just -- that’s purely a logistical issue, so in no way timed to his speaking.
SENIOR ADMINISTRATION OFFICIAL: I wouldn’t read anything into the latter. We're just -- that’s purely a logistical issue, so in no way timed to his speaking.
On the former, I think we're just mainly speaking to the fact that even with a different Iranian president than President Rouhani -- who has made a central part of his campaign in his initial presidency outreach to the West -- I think given the history in Iran, has difficulty in going forward with this type of encounter. Every leader has his or her own politics, and that’s certainly the case with President Rouhani.
Again, I think our view is it's a demonstration of strength to say that you'll meet anytime, anywhere to discuss how to resolve an issue. And the President is certainly -- will continue to be willing to do that. I think President Rouhani and the Iranian side will need to determine how they can both move forward through a negotiation that will include the foreign minister level, and then ultimately, what types of changes that they're willing to make in their positions in order to achieve a new relationship with the United States, which depends upon resolving this nuclear issue.
So it's something we'll continue to test. This is already a different environment, given the seriousness of the Iranian side in pursuing negotiations in the level that will be started on Thursday. But we don’t expect there to be an agreement reached on Thursday, either. This is going to be a process that takes place over time, and that time is not unlimited by any stretch. I think both sides feel some urgency. But we'll just continue to test this diplomatic opportunity.
QUESTION: But to be clear, did they propose anything in exchange for a handshake today?
SENIOR ADMINISTRATION OFFICIAL: I wouldn’t want to characterize their views too much. I mean, obviously, they have a set of negotiating positions, but the fact of the matter is we were never contemplating any negotiation between the Presidents. We were very clear in our discussions that this was not any venue, formal bilateral meeting, or nuclear negotiation; this would have been an informal encounter on the margins of the General Assembly. And that’s precisely because we want to empower the P5-plus-1 process, the foreign ministers, Secretary Kerry, to be the ones negotiating substance. That’s why the President announced in his speech that Secretary Kerry will be taking the lead in terms of pursuing this negotiation with the Iranians and the P5-plus-1…
SENIOR ADMINISTRATION OFFICIAL: I wouldn’t want to characterize their views too much. I mean, obviously, they have a set of negotiating positions, but the fact of the matter is we were never contemplating any negotiation between the Presidents. We were very clear in our discussions that this was not any venue, formal bilateral meeting, or nuclear negotiation; this would have been an informal encounter on the margins of the General Assembly. And that’s precisely because we want to empower the P5-plus-1 process, the foreign ministers, Secretary Kerry, to be the ones negotiating substance. That’s why the President announced in his speech that Secretary Kerry will be taking the lead in terms of pursuing this negotiation with the Iranians and the P5-plus-1…
Well, look, we have a clear statement of policy, which is that we are determined to prevent Iran from getting a nuclear weapon. Now, we've also made clear we have a preference to do that through diplomacy, but we're not going to change that policy simply because there's a new leader in Iran.
Again, it's not surprising that the Iranian leader would condemn sanctions. Sanctions are precisely what has significantly damaged their economy and I think invested them in trying to achieve a resolution through diplomacy. But we are open to negotiation, open to find ways to build confidence with the Iranians. As the President said, there's space for an agreement, given that both the Supreme Leader and President Rouhani have said that it is not their policy to pursue nuclear weapons, and the President has said that the Iranian people can have access to peaceful nuclear energy. It's defining the space within those statements that is going to be the work of diplomats going forward.
QUESTION: Sorry if this has already been addressed, but one thing -- is there any reason why Ambassador Power didn’t stay in her seat for all of Rouhani's speech, number one? Number two… was there something the Iranians wanted in return to make that handshake happen?
SENIOR ADMINISTRATION OFFICIAL: On Sam Power, I don’t think she was there for the speech. My understanding is that she was in the bilat with Foreign Minister Lavrov, which, obviously, we have a negotiation going on over the chemical weapons resolution. But State can speak to that -- but that’s my understanding.
On the second thing, I think our point to them -- I wouldn’t want to characterize their side of the discussions other than to say that, in our view, this wasn't a negotiation over substance. There was never going to be some type of agreement reached in the meeting in the first place. So that wasn't a discussion we were having or entertaining with them in terms of what we agree -- any substantive agreement that would be reached out of the meeting. This was more about whether or not the two leaders would get together on the margins of the Assembly.
QUESTION: Is there any sense of disappointment from the President that this did not happen?
SENIOR ADMINISTRATION OFFICIAL: No, I think -- look, the President has said for six years now that he's willing to meet the Iranian leadership. And I think there's, frankly, not just a necessity of testing this proposition, but also demonstrating to the world that we're the ones who are open to negotiation. That’s how we have maintained international unity. Without a U.S. willingness to engage Iran, I don’t think we would have achieved the sanctions that we have. I don’t think we would have maintained P5-plus-1 unity.
SENIOR ADMINISTRATION OFFICIAL: No, I think -- look, the President has said for six years now that he's willing to meet the Iranian leadership. And I think there's, frankly, not just a necessity of testing this proposition, but also demonstrating to the world that we're the ones who are open to negotiation. That’s how we have maintained international unity. Without a U.S. willingness to engage Iran, I don’t think we would have achieved the sanctions that we have. I don’t think we would have maintained P5-plus-1 unity.
So it's important for us to continue to send that signal. President Rouhani had sent a number of signals through interviews that he had given leading into the trip that he's taken to New York. At the end of the day, though, I think we want to demonstrate that the United States is certainly open to this. But Iran has to change its policies, not just in atmospherics but in their actions.
Sept. 24, 2013 at 2:48 P.M
SENIOR ADMINISTRATION OFFICIAL: What we had indicated was the same thing we’ve been saying to you guys for the last few days and the President said for the last few years, which is we’re open to having discussion with the Iranians at any level. We did not have any plan for a formal bilateral meeting here. We indicated that the two leaders could have had a discussion on the margins if the opportunity presented itself. The Iranians got back to us; it was clear that it was too complicated for them to do that at this time given their own dynamic back home.
So we’re going to continue to pursue this through the channel that the President announced in his speech today, which is Secretary Kerry with Foreign Minister Zarif in the P5-plus-1.
QUESTION: When you say it’s too complicated for them, you’re suggesting that domestically, politically, it was not in their interest? Is that what you mean?
SENIOR ADMINISTRATION OFFICIAL: I think you’ll have to ask them. I mean, clearly, there are complicated dynamics in Iran surrounding the relationship with the United States. Again, at the same time, I think part of what has strengthened the United States in the international community in terms of our unity is the President’s openness to engage Iran, and that’s what we’ve indicated from the beginning of the administration. And I think that indicates that we’re ready to solve this problem, and that’s what we’ve indicated not just when we came into office, but most recently with President Rouhani...
SENIOR ADMINISTRATION OFFICIAL: I think you’ll have to ask them. I mean, clearly, there are complicated dynamics in Iran surrounding the relationship with the United States. Again, at the same time, I think part of what has strengthened the United States in the international community in terms of our unity is the President’s openness to engage Iran, and that’s what we’ve indicated from the beginning of the administration. And I think that indicates that we’re ready to solve this problem, and that’s what we’ve indicated not just when we came into office, but most recently with President Rouhani...
State Department Spokesperson Jen Psaki
Sept. 23, 2013
We hope that the new Iranian government will engage substantively with the international community to reach a diplomatic solution to Iran’s nuclear program and to cooperate fully with the IAEA in its investigation. We remain ready to work with Iran should the Rouhani administration choose to engage seriously. Secretary Kerry welcomes the Foreign Minister's commitment to a substantive response and to his agreement to meeting in the short term with permanent UN Security Council members and Germany coordinated by EU High Representative Ashton to discuss the nuclear program.
*Emphasis added by Iran Primer