Suppose you were the President of the United States, and like President Bush, you were (1) committed to preventing Iran from becoming a member of the nuclear weapons club, (2) seeking to persuade Iran to stop meddling in Iraq, (3) uncertain as to whether an air attack on Iran’s nuclear facilities using conventional weapons would result in more than a minor setback to Iran’s program, (4) facing domestic and international opposition to the use of force against Iran, and (5) concerned about the impact of your actions on the price of oil.

In what manner and under what circumstances would you choose to act?

For reasons that will later become apparent, an excellent way to begin to answer this question is to look back at the measures short of war undertaken following Iraq’s invasion of Kuwait on August 2, 1990. In doing so, I rely on Freedman and Karsh’s The Gulf Conflict, a book widely recognized as the definitive account of that war.

IRAQ, 1990

Within hours after the invasion, the UN Security Council (UNSC) unanimously adopted Resolution 660, which demanded that Iraq “withdraw immediately and unconditionally all its forces to the positions in which they were located on 1 August 1990.” Four days later, in Resolution 661, the UNSC, invoking Chapter 7 of the UN Charter, decided that all member states must prevent the “import into their territories of all commodities and products originating in Iraq or Kuwait exported therefrom after the date of the present resolution.” [emphasis added].

On August 25, the UNSC, noting that it was “gravely alarmed” that Iraq had failed to comply with its earlier resolutions, adopted Resolution 665, which called upon member states deploying naval forces “to use such measures commensurate to the specific circumstances . . . to halt all inward and outward maritime shipping, in order to inspect and verify their cargoes and destinations and to ensure strict implementation of the provisions relating to such shipping laid down in resolution 661.”

With this act, the UNSC sanctioned an embargo of Iraq and Iraq-occupied Kuwait. By so doing, the flow of oil from two of the world’s principal oil-producing countries was abruptly and completely stopped.

Only weeks before the embargo was authorized, OPEC had agreed to increase the price of oil from $18 to $21 per barrel. By the time Iraq’s takeover of Kuwait was an established fact, the price had risen to $23. Fear that Saddam’s next stop was Saudi Arabia pushed the price up to $27. This sharp price increase led to fear of a worldwide recession, as had occurred following the quadrupling of oil’s price in late 1973 and its doubling in early 1979.

A potential mitigating factor was the fact that a number of oil-producing countries had surplus production capacity. In particular, Saudi Arabia could pick up two-thirds of the production shortfall resulting from the embargo. Six days before Resolution 665 was adopted, the Saudi Oil Minister announced that the Kingdom would increase its production by 37%. Other OPEC countries followed suit. By December, oil’s price had fallen to $20 per barrel. Fear of an economic crisis evaporated.

IRAN, 2007

As I have previously noted, the January 19 issue of the Wall Street Journal reported that, for the first time in 20 years, oil consumption by the 30 members of the Organization for Economic Cooperation and Development (OECD) declined in 2006. The Journal, it can be safely surmised, has close ties to the Bush Administration, and it is within this context that the following excerpt pertaining to a recent statement by the Saudi oil minister should be viewed:

    In remarks to reporters in New Delhi this week, Mr. Naimi said the kingdom’s spare-capacity cushion would expand to three million barrels a day by Feb 1 . . . That is a half-million barrels a day more than is exported by Iran, whose nuclear-research standoff with the U.S. has stirred jitters about supply disruptions in the Persian Gulf.. [emphasis added]

The Washington Post’s Jim Hoagland reacted to Naimi’s remarks by saying that they “seemed to give teeth to recent warnings issued in private by Prince Bandar bin Sultan, the Saudi national security adviser, that the kingdom will now respond to Iranian hostility with its own confrontational tactics.”

As in 1990, then, the Saudis are able to compensate for the interruption of oil shipments from other suppliers and, equally important, are signaling their intention to do so should the situation warrant. The situation this time, of course, would be the disruption of Iranian oil shipments, which could happen at the behest of the Iranian government or, more to the point, as a result of American (and allied) actions. The question is whether these actions would or would not be measures short of war.

The Saudi statement came only a few days after Bush’s January 10 address, which made no mention of negotiating with Iran over its nuclear program, its involvement in Iraq’s sectarian conflict, or its support of Hezbollah and Hamas. With that policy option having been removed from the board, he said that the U.S. “will seek out and destroy” the Iranian and Syrian networks “providing advanced weaponry and training to our enemies in Iraq. Continuing, the President said that (1) he had “recently ordered the deployment of an additional carrier strike group to the region,” (2) the U.S. will “expand intelligence-sharing and deploy Patriot air defense systems to reassure our friends and allies, and (3) “we will work with others to prevent Iran from gaining nuclear weapons and dominating the region.”iii

Mustafa Alani, a military analyst with the Dubai-based Gulf Research Center, commented on Secretary of State Rice’s meetings with America’s Middle East allies by saying she “is promising the U.S. will stand firm against Iran. But without a show of force, without backing these words with muscle, no one will take the U.S. seriously, whether in Tehran or any Arab capital.” Alani added the escalating U.S. combat power did not mean that Washington was headed toward a showdown with Iran; rather, the Pentagon may be preparing for tough U.S. action against Iranian-backed militias in Iraq and the retaliation that could follow. [emphasis added]

Bush’s critics were quick to pounce upon his rejection of the Iraq Study Group’s recommendation that negotiations be opened with Iran and Syria. For its part, the New York Times said “The nation needs an eyes-wide-open recognition that the only goal left is to get the U.S. military out of this civil war in a way that could minimize the slaughter of Iraqis and reduce the chances that the chaos Mr. Bush unleashed will engulf Iraq’s neighbors. What it certainly did not need were more of Mr. Bush’s open-ended threats to Iran and Syria.”iii It is unclear whether the “open-ended threats” was a reference to carrier strike group deployment. Presumably, the deployment of air defense systems could not be construed as such a threat.

Five days after the President’s address, Defense Secretary Gates embarked on a trip to Europe and the Middle East. Speaking to reporters at NATO headquarters in Brussels, Gates said that the U.S. was building up its forces to demonstrate its resolve to remain in the Persian Gulf: “The Iranians clearly believe that we are tied down in Iraq, that they’re in a position to press us in many ways . . . We are simply trying to communicate to the region that we are going to be there for a long time.”

Soon thereafter, at a meeting in Bahrain, Gates played down the possibility of American military action against Iran and said it was not the right time for diplomatic engagement: “Frankly, right at this moment there’s really nothing the Iranians want from us, and so in any negotiation right now we would be the supplicant.” He told the emir of Qatar that the U.S. did not intend to retreat from its commitments to defend the region’s Sunni Arab governments. At the same meeting, a senior Defense department official said “Our Arab friends tend to see Iraq in the context of the new challenge from Iran. That’s clearly the Saudi perspective. So the secretary was able to reassure them that we want an Iraq that is a barrier against Iranian expansionism.” [emphasis added]

Between the first and second of Gates’ statements, America’s Persian Gulf allies endorsed the goals on Bush’s new Iraq strategy. The six foreign ministers of the Gulf Cooperation Council (GCC), along with those of Egypt and Jordan, issued a statement that “welcomed the commitment” of the U.S. to stabilizing Iraq. Asked about regional worries about Iran, Sheik Muhammed of Kuwait said the ministers had agreed to a “call for all countries to refrain from interfering in Iraqi internal affairs” and added “This is something that we are all concerned about.”

While the U.S. was reassuring its Arab allies and rounding up their support, Iran’s Ahmadinejad was encountering criticism from the mullahs. In a January 18 article, the New York Times reported that he “appears to be under pressure from the highest authorities in Iran to end his involvement in the country’s nuclear program.” For the Times, this is “a sign that his political capital is declining as his country comes under increasing international pressure.”

Two of Tehran’s “hard-line” newspapers, including one owned by Supreme Leader Ayatollah Ali Khamenei, called on Ahmadinejad to stay out of “all matters nuclear.” Reacting to his comment that the December 23 UNSC resolution is “a piece of torn paper,” Khamenei’s newspaper said the nuclear issue requires its own diplomacy, “sometimes toughness and sometimes flexibility.” The second newspaper, run by an aide to Iran’s chief nuclear negotiator, Ali Larijini, also pressed him to end his involvement with the nuclear program.

The same Times article also reported that the Iranian economy is in trouble:

  • In a letter, 150 lawmakers criticized the president for his economic policies, which have led to a surge in inflation, and for his failure to submit his annual budget for next year in time.

  • Iran’s stock market, which was already in a slump, continued to decline more rapidly in the past month as buyers stayed away. The daily Kargozaran reported last week the number of traders decreased by 46 percent since the UNSC resolution was passed. “The resolution has had a psychological effect on people,” said Ali Hagh, an economist in Tehran. “It does not make sense for investors not to consider political events when they want to invest their money.”

  • The Kargozaran also reported that a group of powerful businessmen, the Islamic Coalition Party, met with Mohammad Nahavandian, a senior official at the Supreme National Security Council, and called for moderation in the country’s nuclear policies to prevent further damage to the economy.

  • Eight major European banks have severed their business ties with Iran. Economists say that move by the banks will also lead to a further increase in the inflation because importers must turn to complicated ways to finance purchases.

In a recent op-ed, Jim Hoagland commented on Iran’s economic woes: “The United States wants European Union nations to deny export credits to Iran and to encourage their banks to join a campaign led by the U.S. Treasury to squeeze Iranian financial institutions linked to their government’s support for terrorism in the Middle East. Iran’s poorly managed oil fields are in desperate need of new foreign technology and investment, making Iran vulnerable to this kind of pressure.”

The latest example of America’s effort to squeeze Iran’s economy was earlier this month, when the Treasury Department barred American financial institutions from doing business with Bank Sepah, which it concluded had been involved in illicit weapons programs. Last year, the United States took similar action against Bank Saderat, another of Iran’s major institutions, citing what it said was the bank’s involvement in financing terrorism. Both Bank Saderat and Bank Sepah, cited for financial transactions linked to weapons proliferation, are state owned or controlled. Though the two banks have virtually no direct links to American banks, the designation means that no American bank can help facilitate—by transferring dollars, for example—any transaction between a European bank and Bank Sepah. Thus if an Italian or German bank wanted to supply dollars for a transaction involving Bank Sepah, it would be unable to do so because American banks would be barred from transferring them.

NOW AND THEN: A COMPARISON

The most sensitive and objective indicator of the likelihood of U.S. military action against Iran is the trend in the price of oil. After Bush’s speech and before the Saudi statement regarding its spare production capacity, oil traders, had they believed that military action against Iran was in the cards, would have boosted oil’s price. No such event took place, as shown in the following graphic:

When the UNSC authorized an embargo on Iraqi and Kuwaiti oil in 1990, oil’s price was trending upward. Now, it is in a downtrend. Thus, from the perspective of the health of the world economy, the risks associated with the imposition of an embargo are lower now than they were then.

Because of the massive debts incurred during its war with Iran during the 1980s, Iraq’s economy was a mess when it invaded Kuwait. However, because Saddam was a totalitarian dictator, he did not have to worry about discontent among the people; any displays of public outrage over economic conditions, had they occurred, would have been ruthlessly suppressed. As indicated by the above-noted indications of concern regarding the economic repercussions of Ahmadinejad’s histrionics, such is not the case in Iran. In my view, then, the imposition of an embargo would intensify the growing opposition, resulting, perhaps, in his removal from office.

Conditions are ripe, then, for embargoing Iranian oil, and the deployment of the second carrier task force to the Persian Gulf should be viewed in the context of enforcing an embargo. Should an embargo take place, it is unlikely, in view of the positions of Russia and China, that it would be authorized by the UNSC. Far more likely, it would result from an agreement among the U.S., Great Britain, France, and Germany. In positing this, I am recalling that, because of Russia’s opposition, it was NATO, acting without UN authorization, that dislodged Serbian forces from Kosovo. The dispatch of Patriot air defense systems to America’s Middle Eastern allies is being taken to protect them from Iranian retaliation for the possible imposition of an embargo.

Perhaps the conditions are being created for negotiations with Iran. In return for abandoning its uranium enrichment program, the U.S. and its European allies will not impose an embargo on Iranian oil.

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  1. The San Diego Union-Tribune reports that the aircraft carrier Stennis and its supporting ships are expected to reach the Persian Gulf in about a month, joining the Dwight D. Eisenhower aircraft carrier strike group and it will be the first time since the invasion of Iraq that two carrier battle groups are stationed simultaneously in the Gulf.
  2. The commander of the U.S. Navy’s Fifth Fleet in Bahrain has said that two carriers will be kept in the Middle East “as long as the situation demands it.” A typical carrier deployment lasts six months.
  3. Notwithstanding its indictment of his speech, the Times, in a subsequent editorial, averred that the expanding power of Iran “is profoundly unsettling to the conservative Sunni-led governments in most of the Arab Middle East that have been America’s traditional allies in the region.”