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Saudi Arabia and Iran
Saudi Arabia and Iran
Friends or Foes?
Banafsheh Keynoush
SAUDI ARABIA AND IRAN
Copyright © Banafsheh Keynoush 2016
Softcover reprint of the hardcover 1st edition 2016 978-1-137-57627-9
All rights reserved. No reproduction, copy or transmission of this publication
may be made without written permission. No portion of this publication
may be reproduced, copied or transmitted save with written permission. In
accordance with the provisions of the Copyright, Designs and Patents Act
1988, or under the terms of any licence permitting limited copying issued by
the Copyright Licensing Agency, Saffron House, 6-10 Kirby Street, London
EC1N 8TS.
Any person who does any unauthorized act in relation to this publication
may be liable to criminal prosecution and civil claims for damages.
First published 2016 by
PALGRAVE MACMILLAN
The author has asserted their right to be identified as the author of this
work in accordance with the Copyright, Designs and Patents Act 1988.
Palgrave Macmillan in the UK is an imprint of Macmillan Publishers Limited,
registered in England, company number 785998, of Houndmills, Basingstoke,
Hampshire, RG21 6XS.
Palgrave Macmillan in the US is a division of Nature America, Inc., One
New York Plaza, Suite 4500, New York, NY 10004-1562.
Palgrave Macmillan is the global academic imprint of the above companies
and has companies and representatives throughout the world.
ISBN 978-1-349-99536-3 ISBN 978-1-137-58939-2 (eBook)
DOI 10.1007/978-1-137-58939-2
Acknowledgments ix
Introduction 1
Notes 239
Bibliography 261
Index 265
Acknowledgments
A
book of this scale, covering the full history of relations between
Saudi Arabia and Iran, could not have happened without the support
of a few key individuals. I was fortunate that chance, destiny, and
hardwork allowed me to meet them, and I have attempted to remain impar-
tial in the delivery of the message that these individuals with diverse under-
standings of the issue have each imparted to me.
As a sign of respect for Saudi Arabia and its people who hosted me, I
mention them throughout this book before my native land Iran and its peo-
ple who also helped with this research. At the King Faisal Center for Islamic
Studies and Research, I am indebted to its chairman Turki bin Faisal Al Saud
whose vision on the importance of the Saudi–Iranian partnership enabled
me to conduct the field research for this book. The center generously hosted
my umrah trip, enabling me to travel to Makkah and Madinah, and interact
with colleagues in Jeddah. It was, beyond doubt, the most important trip of
my life. My profound gratitude goes to Secretary-General Yahya Mahmoud
bin Jonaid and Dalal Mukhlid Al Harbi. Abdulaziz Sager, chairman of the
Gulf Research Center, and his dedicated staff, Bandar and Sonya, helped ease
my trip to Saudi Arabia. I am deeply grateful to Abd al Rahman Al Shobeily,
for his wisdom and support, and to Sami Angawi. There are many others
who have enlightened and informed this book: Abd al-Muhsin Al Akhlas,
Ibrahim Hadlaq, Abdul Rahman Al Hadlaq, Mashaal Al Shemaishy, Saad
Al Ammar, Mishary Al Nuaim, Gaafar M. Al Lagany, Nasser Al Braik,
Osamah Ahmad Al Sanosi, Abdulrahman Al Suhaibani, Awadh Al Badi,
Abdullah Al Shamri, and Basel Raouf Khatib. I am thankful for the friend-
ship of two fellow Fletcher graduates, Jamil Al Dandani who hosted my visit
to Dhahran, and the late Major General Abdulrahman Abdulwahid. Two
Saudi scholars, whose earlier books on the Saudi–Iranian relationship made
the present work possible, deserve special mention: Saeed Badeeb and Faisal
bin Salman Al Saud. The latter along with Abdul Rahman Al Hadlaq and
Saleh bin Suleiman Al Wahaibi, generously gave me their time to meet in
x ● Acknowledgments
person, but I regrettably could not due to conflicting schedules. There are
many other Saudi friends who have helped, by reminding me that I should
say things as they were, and sharing their exceptional hospitality.
I am equally indebted to several key figures in Iran. At the Institute for
Political and International Studies, I am thankful to the former head of the
institute, Abbas Maleki. The magnificent building where the institute is at,
in the foothills of Tehran, was an exclusive membership-based club before
the 1979 Iranian revolution, built then by government funds overseen by my
grandfather for the families of Iran’s foreign ministry employees to enjoy. I
spent some of the best times of my childhood there, and was heartbroken
when it was closed down after the revolution. However, when I saw it years
after while attending a conference there, I was relieved to find that it was put
to good use, serving as a premier foreign policy research institute. Thanks
to the vision of its new leadership, it hired many of Iran’s former diplomats
from before the revolution. I am grateful to Ahmad Danielli, chief of proto-
col to Mohammad Khatami, with whom I briefly discussed the topic of this
book before making a decision to write about it. In the process of compiling
the research, several individuals were instrumental: Mohammad Khazaee,
Ali Asghar Khaji, Hussein Amir Abdullahian, Mohammad Reza Fayyaz,
Mostafa Zahrani, Abolfazl Mehrabadi, and Mohammad Ali Fatollahi
who patiently explained the key drivers of Iran’s foreign policy behavior.
Mahmoud Ahmadinejad and Manuchehr Mottaki granted me three inter-
views each. I am thankful to Mohammad Mousavi Bojnurdi, Mostafa
Mohaghegh Damad, and Ahmad Iravani for our brief conversations. Javad
Rasouli, a former ambassador to Saudi Arabia, gave me an appointment
to meet him in Riyadh, which I regrettably could not, due to conflicting
schedules.
This book was primarily researched in Saudi Arabia and in Iran and
through some 50 interviews with senior-ranking officials and policy makers,
but written in the United States, thanks to which I could aim to develop a
detached understanding of the key drivers of the Saudi–Iranian partner-
ship. In the United States, I thank the The Fletcher School of Law and
Diplomacy. I am indebted to Andrew Hess, Kathleen Bailey, David Deese,
and the late William Martell and John Galvin. I am grateful for support
from Gregory Gause, Elaine Papoulias, Elizabeth Prodromou, Leigh Nolan,
Geoffrey Gresh, Bernadette Kelley-Leccesse, Roschanack Shaery-Eisenlohr,
Majid Rashidi, Charles Freeman, Thomas Mattair, Flyntt Leverett, Gwenn
Okruhlik, Mohsen Kadivar, Mohammad Taqi Sept, Dan Grey, and Thomas
Pickering. I thank R. K. Ramazani for our brief conversation. The team
at Palgrave Macmillan made the experience of publishing a book a joy. In
London, Reza Ghasemi, and Mohammad Khakpour were always happy to
lend a helping hand. My editor Mitch Albert was a friend in the trying times
it took to write this book.
Acknowledgments ● xi
There are some good friends I wish to thank: Kristin, Najla, Arwa, Dalia,
Joyce, Parisa, Nic, Mike, Bruce, Marcos, and Peter. I thank my parents, who
always step in to support me. My father provided good insights into Iran’s
diplomatic history and the people who shaped it. Ida, Nilou, Maryam and
their families were constant supports. A very heartfelt thanks goes to my
son; wise beyond imagination, and who told me not to give up, otherwise
“all that ignoring” that I had levied in the course of writing the book “would
go to waste.” I sacrificed too many weekends, evenings, and family time,
to produce this work, and never faced complaints, and always saw a happy
face.
This book is a labor of love, and I wrote it listening to traditional music
by the great Persian master Gholam Hussein Banan, and to a selection of
Arabian tribal songs hand-picked by General Abdulwahid. I also incorpo-
rated in the original manuscript prior to publication, in every chapter and its
sections, lines of poetry relevant to the content, derived from works by Saudi
and Persian poets, as well as the rich tradition of Nabati poetry. Due to com-
plications regarding copyright, they had to be deleted. But there is, beyond
doubt, a rich poetic tradition in Saudi Arabia and Iran, two countries that
have a great deal in common, despite their differences.
Banafsheh Keynoush
San Francisco,
November 2015
Introduction
I
n November 2001, I shared a ride in an elevator in the United Nations
building with Iran’s former reformist president, Mohammad Khatami. I
was his interpreter in New York, had received a master’s degree in inter-
national affairs, and was preparing for my PhD oral exams. Iran’s president
inquired what my research interest was. I replied vaguely that I wanted to
write about Iran’s foreign policy in the Persian Gulf. Years earlier, during the
course of the Iran–Iraq war, I had made the decision to write about this topic
someday. Yet even back then, Iraq did not fascinate me as much as Saudi
Arabia, which seemed a world apart. I knew very little about the Kingdom
and it felt strange that the rare first-hand accounts of it that I received from
Iranian pilgrims or politicians focused on one narrow experience or interac-
tion. In fact, in all the years that I lived in Iran, not once did I hear a traveler
speak about Saudi Arabia’s people, culture, or natural environment, or pres-
ent a holistic opinion of Saudi society and politics.
As Iran’s president commended my choice of topic, I recalled that he
had overseen the rapprochement between Saudi Arabia and Iran in 1997.
I now contemplated studying the connection between these two states, but
I dismissed the idea quickly, convinced that the rapprochement would not
last. Nonetheless, having spent most of my life outside America and lived
through the war, I recognized the importance of writing about the topic
from the Saudi and Iranian perspectives: much had already been said about
the security of the Gulf region from the vantage point of the United States.
Later that day, I discussed the idea with an aide to the president, who
invited me to observe a meeting held on the sidelines of the annual UN
General Assembly between Saudi Arabia’s then-Crown Prince Abdullah
bin Abd al-Aziz Al Saud and President Khatami. The conversation between
the two leaders, whose friendliness could not conceal the distance between
them, focused on the topic of women. I was impressed that women’s activ-
ism had succeeded in bringing the question of equal rights to the forefront
of the political debate between the two countries. Prince Abdullah inquired
of President Khatami about the restrictions that women faced in Iran in
2 ● Saudi Arabia and Iran
A Note on History
The holy Qur’an is one of the early texts that links the history of Arabia to
Persia. The book, revealed to the Prophet Muhammad (peace be upon him)
Introduction ● 3
in the Arabian heartland, speaks of the Persian Empire in its battles with the
Roman Empire. In 621 ad, the Romans attacked the Persian heartland, and
were defeated. Muhammad was believed to have adopted some of Persia’s
combat techniques, including the building of trenches around Yathreb
(now Madinah) where he migrated to in 622 ad, and defended it in the
famous Battle of the Trenches ( ghazwa al-khandaq) in 627 ad. In 628 ad,
the prophet sent a message to Khusrau II, the Sassanid emperor of Persia,
to embrace Islam, which the latter rejected. Later historical events that have
connected Arabia to the Persians are about the split between Ali’s followers,
known as Shi‘is, from other Muslims—Sunnis—over the question of the
prophet’s rightful successor following his death in 632 ad. Although many
link Shi‘is with Persia, Arab Shi‘is had settled in the eastern Arabian penin-
sula, Iraq, Bahrain, and Yemen, before Persia adopted Shiism.
The decline of the Persian empire around the time of the prophet’s death
led to the loss of control over the territories surrounding the Gulf, while
increasing number of Arabs including Shi‘is began to migrate to the area.
The Arab invasion two years after Muhammad’s death finalized the con-
version of Persia’s Zoroastrian population to Islam by 645 ad. Historians
believe that Islam appealed to the Persians, but the invasion was at times
equated with a decline of Persian culture and civilization, and brought along
a deep resentment of Arabs even among the Persian clerical establishment.
Over the following centuries, Persia was ruled by Arabs or their Ottoman
patrons at various junctures and followed the Sunni school of faith. By the
early sixteenth century, central Persia’s ruling Safavids had adopted Shi‘ism,
which had spread to areas surrounding Persia, and built a new Persian
“nation-state” with a distinct identity that could protect their empire from
further Arab invasions. The Safavids converted Persian Sunnis to Shi‘ism,
and allowed clerics to develop a new national narrative as well as a dif-
ferent interpretation of Islamic history. The clerics established judicial and
religious institutions, and a hierarchy that granted them power within the
new state.
Two centuries later, in present-day Saudi Arabia, Muhammad ibn Abd
al-Wahhab who was believed to have traveled widely across the Middle East
including Persia, and may have witnessed Persia’s religious transformation
and successful state-building under the Safavids, decided to counter the
dominant Ottoman power and its distortion of religious practices in his
native Najd in the Arabian mainland by preaching a unitarian brand of
Islam to bring its tribes together. Abd al-Wahhab formed an alliance with
Muhammad ibn Saud to build the first Saudi “nation-state” in 1744. The
realm collapsed in 1818, but clerics realigned with the Al Saud clan to form
the second Saudi realm in 1824 and the third in 1902, out of which the
modern Kingdom of Saudi Arabia emerged in 1932.
4 ● Saudi Arabia and Iran
As important as these historical events are, they were not major factors in
the formation of the twentieth-century diplomatic relations between Saudi
Arabia and Iran. When Reza Shah and Abd al-Aziz Al Saud assumed power
in modern-day Iran and Saudi Arabia respectively, religious fervor in the
lands over which they reigned (before the establishment of the modern states
they were to build) had nominal influence over their decision to establish
ties. The two rulers sought to control territory that had been under the
influence of foreign powers for centuries; the Saudi–Iranian relationship
had no other formative connection but for the religious memories of the
past, which these leaders ignored.
To reflect this early diplomatic history, I focus less on such memories and
more on the evolution of the “reason of state” in the Saudi–Iranian relation-
ship, which, from its inception, was subject to foreign interventions.
The dispute over the nomenclature of the Gulf was invariably exploited.
In 1958, Egyptian President Gamal Abdel Nasser promoted the term
“Arabian Gulf” after the Shah of Iran granted de facto recognition to the
state of Israel. In the 1960s, rising pan-Arab sentiments across the Middle
East encouraged other Arab leaders to dispute the name “Persian Gulf.”
Former Syrian President Hafez al-Assad insisted on the term “Arabian Gulf”
so to carve out a nominal leadership role for Syria in the Arab world, and to
challenge the shah over Iran’s better ties with Syria’s rivals, Egypt and Saudi
Arabia. Iraqi leader Saddam Hussein used “Arabian Gulf” to indicate his
displeasure with the shah’s efforts to project superior Iranian power in the
region, and later to provoke Iran in the course of the Iran–Iraq war.
Rather than heeding the advice of his veteran diplomats in the Arab
world to resolve this issue with the Arab states, the shah opted to avoid
acknowledging Arab competition—a typical response that continues to
characterize Iran’s apathetic outlook toward its non-Persian neighbors. To
make matters worse, the shah used Iran’s historic claims over the Persian
Gulf to drive nationalistic sentiments whenever he struggled at home to
advance his policies. This practice was repeated by Iranian governments fol-
lowing the Islamic revolution in 1979. Iran’s embattled President Mahmoud
Ahmadinejad rallied public support by encouraging the composition of
national hymns celebrating the name “Persian Gulf.” At the height of his
unpopularity, he declared April 29 “Persian Gulf Day” to mark the anniver-
sary of the expulsion of the Portuguese military by Persia, albeit with British
aid, from the Strait of Hormuz in 1622.
Moreover, many Iranians have refrained from using the term “Shatt
al-Arab” to refer to the waterway that runs between Iran and Iraq, prefer-
ring “Arvand Rud”—despite the fact that “Arvand” is another name for the
Tigris, which is a confluent of the Shatt al-Arab. Abol-Ghassem Ferdowsi,
the great poet credited with reviving Persian from Arabic linguistic influ-
ences, and whose work is widely cited to validate Iran’s historical territorial
claims, seems to have used “Arvand” in his poems. It is, however, unclear
if he meant to refer to the entire river or simply to the Tigris. Ferdowsi’s
poems are still studied, centuries after they were first produced, to arrive at
conclusive opinions including whether or not many of the poems attributed
to him were indeed his. Nonetheless, according to the following lines attrib-
uted to him, it appears that—by mentioning Arvand—he actually refers to
the Tigris: “If you are Pahlavani [i.e., a speaker of the Old Persian Pahlavi
language], then you may not know that the Arvand is called the ‘Tigris’ in
Arabic.”
Arab and Iranian geographers and historians can resolve the issue of what
to name these contentious bodies of water only when the balance of power in
the region is restored. This book uses the term “Persian Gulf” in deference
to historical precedence. It refers to the “Gulf” on a discretionary basis or
6 ● Saudi Arabia and Iran
as a defining noun, for ease and flow of language. In return, I use the term
“Shatt al-Arab” when referring to the waterway, in an effort to ensure partial
balance between the Arab and Iranian views.
The book’s methodology is historical, as per its chapter breakdown and
the chronology of events. Important timelines are identified to trace the
shifting balance of power that defines Saudi–Iranian ties. This permits a
subtle understanding of how that balance conditions ties over time, and
with varying degrees of force.
Part I offers an overview of the book. Chapter 1 examines the emergence
of bilateral ties. A theoretical perspective is offered to address how concerns
about the regional balance of power shape Saudi–Iranian relations in more
recent times, providing the analytical framework for the book. Chapter 2
reviews the religious dimension of relations to offer a historical context for
the book’s key argument that religious differences are a variable of political
and strategic determinants.
Part II examines the Saudi–Iranian relations in its formative stages.
Chapter 3 documents the geopolitical considerations in the early twentieth
century that impact the position of the two regional powers internally and
in their interactions with external actors in the Persian Gulf—namely the
British, Ottomans, and Russians. It concludes by examining the nature of
the balance of power in the Persian Gulf prior to the inception of formal
ties between Saudi Arabia and Iran in 1929. Chapter 4 examines the early
diplomatic history, and relations during World War II and in the immedi-
ate postwar period. Chapters 5 and 6 explain the evolution of the regional
balance of power through various phases of the emerging Saudi–Iranian
partnership, including the Cold War impact on ties from 1954–1978.
Part III reviews Saudi–Iranian ties following the Iranian revolution.
Chapter 7 looks at the impact of revolution on the regional balance of power,
and investigates how that balance evolved through the Iran–Iraq war and
the Gulf War. Chapter 8 looks at ties after the Gulf War until 9/11.
Part IV reviews the current conflicts between Saudi Arabia and Iran.
Chapter 9 looks at the multiple challenges confronting them after 9/11, and
the evolution of Iran’s political decisions behind its nuclear activities and
the impact and strain on Saudi Arabia. Chapters 10 and eleven explore the
reasons behind the Saudi–Iranian responses to a series of regional issues,
including in Iraq, Lebanon, Syria, and over Palestine. These cases under-
score the leverage that Riyadh and Tehran have over the Middle East region.
The conclusion reviews Saudi–Iranian ties in the aftermath of the Arab
Spring. This period is unique in that it has witnessed an uncharacteristically
assertive Saudi foreign policy, while Iran has largely been on the defensive
despite its outwardly confrontational rhetoric. The chapter returns to the
examination of balance of power theory, offering an overview as well as
some considerations for the future of this critical partnership.
PART I
A Historical Overview of
Saudi–Iranian Relations
CHAPTER 1
B
efore World War II, Saudi Arabia and Iran had limited exchanges,
except over the regulation of the annual pilgrimage to the holy cities
of Makkah and Madinah in the Hijaz region of western Arabia. The
pilgrimage encouraged small-scale trade of Persian goods, mainly carpets,
and the settlement of a small Persian community in Jeddah. Meanwhile,
boundary disputes, which included several joint oilfields, remained dormant
when the challenge of internal state security was a more urgent concern.1
Saudi Arabia and Iran relied on the British Residency in the Persian Gulf
to ensure stability along their borders in this period.2 But as British power
waned during the war, critical US financial aid helped Saudi Arabia and
Iran cope with severe wartime economic afflictions. During the Cold War,
US military arms imports to the two countries increased; it was expected
that they would help fight the spread of communism in the Middle East.
In 1971, the “Twin Pillars” policy, developed under the Nixon Doctrine but
conceived by the British, accelerated arms sales to Saudi Arabia and Iran.
The policy allowed Washington to keep an “over-the-horizon” posture in
the Persian Gulf to avoid direct combat in the region with the Soviet Union.
Iran’s larger economy and well-trained army compared to Saudi Arabia, and
proximity to the Soviet Union, made its role central to the success of the
policy.
Saudi Arabia was uncomfortable with Iran’s new role, and believed that
Shah Mohammad Reza Pahlavi’s susceptibility to US coaxing permitted Iran
to be the favored partner under the policy.3 The shah suffered from the need
for excessive US attention; in private, however, he scorned the Americans
for intervening in Iran’s affairs, although he was careful not to upset them
in public. Moreover, Washington was aware of his agenda to rid the Gulf of
foreign presence, and it relied on Riyadh’s cautious foreign policy toward big
10 ● Saudi Arabia and Iran
War. Yet when he was dispatched to Tehran to reopen the Saudi embassy,
which was closed down after Saudi security forces killed Iranian pilgrims
charged with stirring riots in Makkah in 1987, a Saudi diplomat was attacked
by a mob and lost an eye.5 (Another mob attacked the Saudi embassy in
Tehran following the Makkah incident; a Saudi diplomat jumped from an
embassy window, plunging to his death.)
Not surprisingly, Saudi–Iranian interactions remained minimal in the
aftermath of the war. Tehran, meanwhile, decided to resume diplomatic rela-
tions with Baghdad and expand trade with Iraq’s northern Kurdish region,
declared a no-fly zone since the Gulf War, by a coalition of military forces
from Britain, France, and the United States. The zone kept Iraqi troops out
of the area, and allowed coalition forces to conduct regular military opera-
tions to contain Baghdad, conditions ripe enough to allow Iran to gradu-
ally expand its influence over Iraq. Tehran expanded trade, the exchange
of seminary students, and it bolstered support for Iraqi dissidents. It also
proceeded to resume pilgrimage to the Shi‘i holy sites in Najaf, Karbala, and
Samara, despite the public apathy among Iranians toward Iraq as a result of
the Iran–Iraq war.
The internal debate in Riyadh over Tehran’s decision to resume ties with
Baghdad was mute. The decision by the coalition to sanction Baghdad’s gov-
ernment meant that Tehran could not expand meaningful ties with it, and
the kingdom chose not to openly react. It also decided not to resume formal
diplomatic relations with Baghdad. But Saudi businesses were allowed into
Iraq in 1998 as part of the UN-sponsored oil-for-food program designed to
alleviate the impact of sanctions, in place since August 1990.6
The US policy of nonengagement with Iran and Iraq, however, dis-
turbed the relative peace in the region that was obtained after the Gulf War.
Furthermore, although Washington adopted an “offshore balancing strat-
egy” to avoid large-scale troop deployments to the Gulf, it maintained forces
in Saudi Arabia, which unnerved Iran. In February 1994, the United States
officially announced the “dual containment policy” against Iran and Iraq.
Saudi Arabia’s leverage with the United States grew, but Iran and Iraq became
increasingly isolated. The kingdom faced internal opposition for hosting US
troops itself—a fact conceded in private by Crown Prince Abdullah to Iran’s
president, Ali Akbar Hashemi Rafsanjani, at a meeting of the Organization
of the Islamic Conference (OIC) held in Pakistan in 1995.7
Regional concerns over Iraq’s stability, also discussed at the meeting,
mounted when Washington shifted its policy to a “forward military strat-
egy” in the Gulf after 9/11. The strategy was shortsighted: in its haste to
protect US interests through preemptive military strikes, it failed to consider
the concerns by local states that the region could not absorb a new war.
These concerns were exacerbated by the fact that Saddam could not directly
12 ● Saudi Arabia and Iran
The prevalence of this mindset has allowed Iran’s relationship with the
United States to overshadow the question of the important regional bond
with Riyadh. Furthermore, it has perpetuated Iran’s historical fear that
Saudi Arabia has jeopardized a US–Iranian détente in order to ensure the
robustness of the US–Saudi “special partnership”—making Iran accord-
ing to its politicians, the “second wife” in the critical relationship with the
United States. From Tehran’s perspective, the Saudi endorsement of mea-
sures to contain the Iranian role in the region aim to perpetuate hostility
in the US–Iranian ties and marginalize Iran in the region’s relationship
with the West. As a result, Tehran has never been too serious in efforts to
reach out to Riyadh, preferring to invest in the elusive idea of improved
ties with the United States. To achieve regional strategic parity with the
United States, moreover, Iran has frequently jeopardized Saudi security
interests.
The Saudi stance toward Iran reflects the kingdom’s difficult position of
needing to balance its interests against the competing, and potent, Iranian
and US interests. Saudi Arabia regards itself as the weaker state, and unlike
Iran, it is not inclined to challenge US dominance in the region directly.
Yet, it seeks to assert its position in the Gulf by rejecting the United States
or Iran as regional hegemons given their power to contain the Saudi influ-
ence. Therefore, while as the so-called weaker link, the kingdom follows the
powerful trends that shape US–Iranian relations, it seeks to influence those
trends on its own terms. For example, Saudi Arabia rejected US and Iranian
interests when they converged over Iraq in 2005; the kingdom did not fully
endorse the Iraqi political process and elections, which the United States
called for and which Iran endorsed.
The challenge to maintain an interdependent relationship as an equal
partner with the United States and Iran is not easy, requiring the king-
dom to adapt to centrifugal political trends in the US–Iranian relationship.
The kingdom is also required to abandon a traditionally cautious foreign
policy—the result of a nascent national identity and foreign diplomacy—in
favor of proactive measures, without the time to build consensus within the
Royal Family or the religious establishment over those measures. Even then,
Saudi Arabia lacks sufficient guarantees that its interests will converge with
those of either the United States or Iran. In those instances, it depends on
its partnership with the United States to sideline Iranian interests, and uses
the religious establishment to demonize the Iranian role. All too frequently,
it also reacts to Iranian provocations to the detriment of longer-term strate-
gies toward Tehran. The result often leads to a diminished Saudi position in
the region, which the kingdom tries to restore, through aggressive posturing
toward Iran and winning over US support for the kingdom’s massive arms
build-up.
14 ● Saudi Arabia and Iran
Directorate (GID) Prince Muqrin bin Abd al-Aziz Al Saud underscored the
kingdom’s hope that Iran would be the one to make positive changes and
ward off fears about its nuclear ambitions.12 Otherwise, Saudi Arabia and
the Gulf states would be placed in the difficult position of choosing between
two evils depending on which is less threatening to their security: a nuclear-
powered Iranian military capability, or war with Iran to prevent it from
acquiring nuclear weapons.
Thus Saudi Arabia is unwilling to challenge Iran directly over the issue,
but has, at the same time, taken measures to change Iranian behavior. Such
measures include indirectly supporting UN sanctions, which, although
Prince Muqrin was personally opposed to them (and no Saudi officials have
spoken in favor of them either), have been advocated unofficially by Prince
Turki bin Faisal Al Saud, who for decades headed the GID before his resig-
nation in 2001. More recently, Saudi Arabia worked closely with France, a
negotiating partner in the nuclear talks with Iran, to ensure Iranian compli-
ance with a strictly peaceful nuclear program.
In pursuing their relations, Saudi Arabia and Iran are restrained in
their ability to act independently without taking into account US interests.
Generally, they tend to muster resources to make autonomous foreign-policy
choices where they can, for example, their policies toward Iraq after the
US-led invasion. Post-invasion, through its controlling presence in Iraq, the
United States replaced the Iraqi state in the balance of power equation with
Saudi Arabia and Iran; but it was unable to independently force either to
comply with its goals. Against this backdrop, US strategies that can rein-
force the balance of power in the Persian Gulf will enhance the region’s
stability. This power has historically been distributed between Iran, Iraq,
and Saudi Arabia since the inception of the modern Iraqi and Saudi states
in 1921 and 1932 respectively. Foreign threats or interventions, such as the
US invasion of Iraq, tend to exacerbate anti status quo behavior, as these
regional states will attempt to change developments in their favor.
The balance of power approach does not guarantee peace given the con-
stant presence of policies that disturb the status quo in the Persian Gulf.
But with skilled statesmanship, it might serve as a better safeguard against
future wars.13 Other factors that partially help explain the Saudi–Iranian
relationship—ideological, leadership, and domestic factors—as indicated
in the following sections, are relevant. But they are secondary to the vital
impact of international politics on Gulf affairs.
Saudi Arabia and Iran use ideology to influence the Islamic world. The
application of ideology to politics is appealing when regional power imbal-
ances prevail. In such cases, religion becomes a powerful tool to advance state
decisions in the face of insecurity. Hence, ideology can further the state’s
decision-making power.14 At the same time, as relatively new formations,
16 ● Saudi Arabia and Iran
Saudi Arabia more, and Iran to a lesser extent, are incapable of subordinat-
ing ideology to rational decision making. They are driven by ideology as
opposed to possessing the ability to drive it. Hence, the state’s relationship
with religion is complicated. On the one hand, neither state is able to turn
the religious establishment into an actor capable of making rational choices
at all times. On other hand, the religious establishments frequently, if not
always, follow state policies, because the state possesses enough wealth and
power to control and guide religious forces. Therefore, in both countries,
ideology can simultaneously impede and advance state goals.15
The boundaries between the state and the religious establishment in
Saudi Arabia and Iran wane when they are faced with increased regional
insecurity. This confuses their foreign policy roles and empowers the reli-
gious establishment to direct foreign policy. With fewer instruments to
advance foreign policy goals, the state enables the religious constituencies
to shape foreign policy, which also helps reduce domestic tensions with the
radical religious establishment in both societies. This issue is poignant in
the Saudi–Iranian connection, where the Shi‘i–Sunni dichotomy frequently
plays out to advance political goals.
Yet, this acute religious-ideological rivalry is not itself a source of conflict
in the region. In the past, Saudi Arabia and Iran have forsaken tensions aris-
ing from their different religious perspectives by addressing the geopoliti-
cal considerations that help restore the regional balance of power between
them. For example, when the Middle East enjoyed a relatively stable period
in the decade after the end of the Gulf War, they expressed mutual concern
over Washington’s anti status quo policies toward Iraq in the 1990s and
after 9/11.
However, there is no doubt that the strong Islamic identities adopted
by Saudi Arabia and Iran have often led to competition for leadership of
the Islamic world. Moreover, Saudis and Iranians have been indoctrinated
around differences between Arabs versus Persians over centuries which,
along with the Shi‘i–Sunni rivalry, serves to separate them from each other
emotionally. It was my observation that the Saudi people appeared keener
to have contacts with the Iranian people than the reverse. After all, Iran’s
Persian Shi‘i identity has, in part, been construed as a reaction against the
core states constituting the Sunni Arab world. In Saudi Arabia, during times
of internal crisis the state compensates for the incongruity between a weak
national identity and a powerful ultra national Arab and Islamic identity in
part by rejecting the Persian Shi‘i paradigm.
The Shi‘i–Sunni rivalry is often a symptom of dire regional circum-
stances in which the United States frequently plays a controversial role.
Though Saudi–Iranian interests are instrumental in shaping strategic and
political developments in the region, it is the United States that acts as the
Overview of Saudi–Iranian Relations ● 17
parallel official power centers compete to advance state agendas that, at times,
conflict. For example, the Iranian constitution grants overlapping foreign
policy prerogatives to the offices of the supreme leader and the president.
Following Ahmadinejad’s election in 2005, Supreme Leader Ali Khamenei
appointed special envoy Ali Akbar Velayati to establish a direct line of com-
munication with Saudi Arabia; the initiative was silently halted. The former
Saudi ambassador to Iran, Nasser Al Braik, told me in an interview that
Riyadh was dismayed, and failed to fully grasp the reason for the com-
munication breakdown—which Iran never disclosed.17 (Velayati declined
to answer my inquiry on the subject.) Later developments in Iran revealed
that Ahmadinejad was determined to make his own mark on foreign policy
by placing key figures from among his staunchest supporters, which did not
include Velayati, in critical offices. The move preempted the supreme leader
from taking charge of the Saudi–Iranian file. In Saudi Arabia, where for-
eign policy is developed by a small group of royals, frequent family schisms
can influence the kingdom’s position on how real or perceived the Iranian
regional threat actually is. The king is the ultimate decision maker, although
he may follow the advice of a small group of royals, close ministers, or other
political appointees. Nonetheless, the Iranians are left to speculate about
the actual impact of schisms on Saudi policy toward Iran. For example, it
was commonly believed in Iran that the late defense minister, Crown Prince
Sultan bin Abd al-Aziz Al Saud, opposed close Saudi–Iranian ties because
of his superior connections with the US defense establishment—notwith-
standing efforts by then Crown Prince Abdullah to restore the relation-
ship. Resumption of relations did go ahead despite the Iranian perception.
This led a few seasoned Iranian diplomats with long experience of living
in the kingdom to argue that, ultimately, personal differences within the
royal family would not intrude upon overall policy adopted toward Iran.18
However, many Iranian diplomats have frequently failed to grasp this argu-
ment, which may have enabled them to better reach out to the various politi-
cal actors in Saudi Arabia without prior biases.
This is complicated by the relatively opaque domestic decision making
processes in Saudi Arabia, not to mention in Iran. Ultimately, however,
these processes also serve the primary function of promoting state agendas
and preferences for the advancement of foreign policy. Since leaders’ roles in
Saudi Arabia and Iran are subject to pressures exerted by foreign forces—
including, specifically, the reality of the large US presence in the Persian
Gulf, their foreign policy is not merely shaped by their individual tastes,
ideological choices or leadership styles. Owing to significant state wealth,
at the same time, Saudi Arabia and Iran can make foreign policy choices
based on “reasons of state.” State power thus directs the leadership, rather
than the reverse.19
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Hän katsoi minuun kierosti silmälasiensa lävitse, tutkiakseen
ranskalaisella viekkaudella ajatukseni, ennenkun vastasi.
Kopautin rintaani.
»Niin että hän tietää nyt vihdoinkin», jatkoin kuten ennen, »että
hänen tilansa on paljon huolestuttavampi, ja aikoo viipyä sairaalassa
muutamia päiviä, kunnes on täysin tointunut. Voinhan sillä aikaa
ottaa toisessa kerroksessa pihan puolella olevan huoneen, joka oli
naisilla.»
Viimeiset sanat lausuin teeskennellyllä välinpitämättömyydellä,
ilman että olisin silmääkään räpäyttänyt, vaikka vapisin sisällisesti,
sillä panin niillä sanoilla kaikki peliin. Mutta jo seuraavana hetkenä
hengitin keveämmin. Huomasin, että olin osunut maaliin ja että
heidän epäluulonsa katosi.
Nyökkäsin miettiväisenä.
»Kun he ensin tulivat tänne, kuusi viikkoa sitten, niin oli hän aivan
terve. Mutta sitten hänen äitinsä sai jonkun paikan ja muutti pois; ja
sen perästä hän ei mennyt koskaan ulos, vaan istui täällä ja itki tai
ravisteli ovia ja ikkunoita. Hänen veljensä oli aivan epätoivoinen
hänen suhteensa — hän ei antanut kenenkään muun hoitaa häntä.
Mutta toivoakseni hän on nyt jo terve, lapsi raukka, sillä nyt hän on
äitinsä luona taas.
Nyökkäsin hänelle.
»Niin, sir.»
Matkalla
Viittasin hänelle, että kun kaikki kävi ympäri, niin menestykseni oli
vain sattuman tulos. Jos olisin todellakin ollut terävä-älyinen, niin
olisin heti ymmärtänyt tuon asemasillalla tapahtuneen äkillisen
sairastumisen merkityksen, kiiruhtanut takaisin paikalle ja seurannut
Martignya — kuten häntä vielä ajatuksissani kutsuin — sairaalaan
hankkiakseni mahdollisesti hänen alkuperäisen osoitteensa. Jos
sallimus ei olisi suosinut minua, niin olisin ollut yhtä kaukana
arvoituksen ratkaisusta kuin ennen. Minä ihan värisin ajatellessani,
miten heikosta langasta voittoni oli riippunut.
Kun nyt muistelen noita sanoja, tuntuu minusta siltä kuin en olisi
ollut aivan vähän narrimainen ja itseeni luottava; mutta kun katsoo
tulosta… No niin, missään tapauksessa ei päällikölläni ollut halua
nauraa, vaan hän istui muutamien silmänräpäysten ajan syviin
ajatuksiin vaipuneena.
Jenkinson hymyili.