Zalmay M. Khalilzad

In the wake of the US-led conquest of Iraq, the government of Iran worries that they will be targeted for US invasion next. Sadegh Kharrazi, Iran’s ambassador to France and the nephew of Foreign Minister Kamal Kharrazi, drafts a bold proposal to negotiate with the US on all the outstanding conflicts between them. [American Prospect, 5/21/2006] Diplomats refer to the proposal as “the grand bargain.” The US sends neoconservative Zalmay Khalilzad, a senior National Security Council official, to talk with Iran’s UN ambassador, Javad Zarif. [Vanity Fair, 3/2007] The proposal was reviewed and approved by Iran’s top leaders Supreme Leader Ayatollah Ali Khamenei, President Mohammad Khatami, and Foreign Minister Kamal Kharrazi. Tim Guldimann, the Swiss ambassador to Iran, is used as an intermediary since the US and Iran do not have formal diplomatic relations. [Washington Post, 2/14/2007]
According to the language of the proposal, it offers “decisive action against any terrorists (above all, al-Qaeda) in Iranian territory” and “full cooperation and exchange of all relevant information.” In return, Iran wants “pursuit of anti-Iranian terrorists, above all [the Mujahedeen-e Khalq (MEK)],” a dissident Iranian group which the US officially lists as a terrorist organization.
Iran also offers to accept much tighter controls by the International Atomic Energy Agency (IAEA) in exchange for “full access to peaceful nuclear technology.” It proposes “full transparency for security [assurance] that there are no Iranian endeavors to develop or possess WMD” and “full cooperation with IAEA based on Iranian adoption of all relevant instruments (93+2 and all further IAEA protocols).” That is a references to IAEA protocols that would guarantee the IAEA access to any declared or undeclared facility on short notice.
The proposal also offers a dramatic change in Iranian policy towards Israel. Iran would accept an Arab league declaration approving a land-for-peace principle and a comprehensive peace with Israel in return for Israel’s withdrawal to 1967 lines, a softening of Iran’s usual policy.
The proposal further offers to stop any Iranian support of Palestinian opposition groups such as Hamas and proposes to convert Hezbollah into “a mere political organization within Lebanon.” It further offers “coordination of Iranian influence for activity supporting political stabilization and the establishment of democratic institutions and a nonreligious government” in Iraq.
In return, Iran wants a democratic government in Iran, which would mean its Shiite allies would come to power since the Shiites make up a majority of the Iraqi population. The proposal wants the US to remove Iran from its “axis of evil” and list of terrorism sponsors. [American Prospect, 5/21/2006]
US Rejects Offer – The US flatly rejects the idea. “We’re not interested in any grand bargain,” says
Undersecretary of State for Arms Control and International Security John Bolton. [Vanity Fair, 3/2007] The American Prospect will later comment that “Iran’s historic proposal for a broad diplomatic agreement should have prompted high-level discussions over the details of an American response.” State Department counterterrorism expert Flynt Leverett will later call it a “respectable effort” to start negotiations with the US. But within days, the US rejects the proposal without even holding an interagency meeting to discuss its possible merits. Guldimann, the Swiss intermediary, is reprimanded for having passed the proposal to the US. [American Prospect, 5/21/2006] Larry Wilkerson, Secretary of State Colin Powell’s chief of staff, will later say that it was a significant proposal for beginning “meaningful talks” between the US and Iran but that it “was a non-starter so long as [Dick] Cheney was Vice President and the principal influence on Bush.” [Newsweek, 2/8/2007] He will also say that the State Department supported the offer, “[b]ut as soon as it got to the Vice President’s office, the old mantra of ‘We don’t talk to evil‘… reasserted itself” and Cheney’s office turned the offer down. [BBC, 1/18/2007] Deputy Secretary of State Richard Armitage will later claim that, “We couldn’t determine what was the Iranians’ and what was the Swiss ambassador’s,” and says that he though the Iranians “were trying to put too much on the table.” National Security Adviser Condoleezza Rice will say of the proposal, “Perhaps somebody saw something of the like” but “I just don’t remember ever seeing any such thing.” [Newsweek, 2/8/2007] Colin Powell will later say that President Bush simply didn’t want to negotiate with an Iranian government that he believed should not be in power. “My position… was that we ought to find ways to restart talks with Iran… But there was a reluctance on the part of the president to do that.” He also says, “You can’t negotiate when you tell the other side, ‘Give us what a negotiation would produce before the negotiations start.’” [Newsweek, 2/12/2007] Days later, Iran will propose a more limited exchange of al-Qaeda prisoners for MEK prisoners, but the US will reject that too (see Mid-May 2003). Author Craig Unger will later write, “The grand bargain was dead. Flush with a false sense of victory, Bush, Cheney, and [Defense Secretary Donald] Rumsfeld felt no need to negotiate with the enormous oil-rich country that shared a border with the country America had just invaded.” [Unger, 2007, pp. 308-309]
Proposal Echoed Four Years Later – In 2007, the BBC will note, “Observers say the Iranian offer as outlined nearly four years ago corresponds pretty closely to what Washington is demanding from Tehran now.” [BBC, 1/18/2007]