Document Type : Research Article
Author
Professor in International Relations, Member of political sciences department , Yasouj University, Yasouj, Iran
Abstract
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Extended Abstract
Introduction
Iran ranks as the world's second-most bordered country after China, with 15 contiguous neighbors. An extensive neighborhood constitutes a significant geographical advantage, potentially serving as the foundation for a coherent regional policy. For instance, such a policy has underpinned the European Union's relations with its southern and eastern neighbors for three decades, proving instrumental in fostering deeper ties. Similarly, China's embrace of a neighborhood strategy significantly contributed to its ascent as a global power and the mitigation of border conflicts. Despite possessing this geographical potential, an examination of Iran's political trajectory and foreign policy over the past four decades reveals that a strategic neighborhood policy has not occupied a central role in Tehran's diplomatic agenda.
The first decade following the Iranian Revolution was characterized by efforts to "export the revolution" to neighboring states, resulting in considerable bilateral tensions. This approach rapidly led to an eight-year war on its western border, while its southern neighbors responded by establishing the Gulf Cooperation Council (GCC) in 1981 as a collective security measure. Concurrently, on its eastern frontier, Iran confronted a coup in Afghanistan, followed by its invasion by the Soviet Union. These developments not only strained Tehran's relations with Kabul but also triggered a massive influx of Afghan refugees into Iran.
Although subsequent administrations, namely those of Hashemi Rafsanjani and Khatami in the revolution's second and third decades, pursued a policy of détente with neighboring countries, Iran consistently failed to institutionalize a sustained and stable neighborhood policy. The peak of this inefficiency and failure came in 2015, during the Hassan Rouhani government, with tensions in relations between Iran and Saudi Arabia. The storming of the Saudi diplomatic missions in Tehran and Mashhad, which culminated in the severance of diplomatic ties, plunged Iran's relations with its Arab neighbors in the Persian Gulf into a deep freeze. This rift was further exacerbated by proxy confrontations in regional conflicts, notably in Syria and Yemen. While attempts at reconciliation were made during the final year of Rouhani's second term, they proved ultimately unsuccessful.
Notwithstanding this historical context, upon assuming office, President Ebrahim Raisi consistently emphasized a neighborhood policy and dialogue with regional states as a cornerstone of his foreign policy. Consequently, this orientation was formally integrated into the political discourse of his administration. In this vein, Foreign Minister Hossein Amir-Abdollahian, in a policy document submitted to parliament, outlined a recalibration of Iran's foreign policy. This included prioritizing relations with neighboring countries, alongside advancing an "Asian outlook" and a "Look to the East" strategy. These developments prompt the central research questions: What were the principal objectives of the Raisi administration in championing a neighborhood policy? What imperatives drove this initiative, and what key obstacles impeded its implementation regarding the development of relations with Iran's southern neighbors?
Methodology
This study employs an explanatory-analytical method to address the research questions. Data and necessary resources were gathered through documentary and library research.
Research Findings
The objectives of Ebrahim Raisi's neighborhood policy can be analyzed through four key dimensions: 1) Constructing a geo-economic order; 2) Diversifying spheres of geo-economic influence; 3) Institutionalizing stability and mutual understanding within its immediate periphery; and 4) Countering Israeli influence among Arab states. To realize these objectives, The Raisi's administration needed to cultivate five characteristics of an effective neighborhood policy: 1) A foreign policy correctly calibrated to the regional and international environment; 2) A clearly defined and executed role for Iran in its relations with neighbors; 3) The avoidance of provocative and destabilizing actions in the region; 4) Addressing the legitimate security concerns of neighboring states; and 5) Assuming collective responsibility for regional security.
The implementation of this policy faced significant hurdles across three levels: national, regional, and international. At the national level, Raisi pursued this course despite a lack of consensus among Iran's political elite regarding the policy's substance. Moreover, the concept itself remained ambiguously defined, with unclear theoretical foundations and practical boundaries. Regionally, a profound distrust of Iran and its regional activities persisted. The Arab states of the Persian Gulf perceived Iran's policies in Syria, Lebanon, Yemen, and Iraq as fundamentally destabilizing. Internationally, while Iran's détente with Arab neighbors benefited U.S. allies in the region (excluding Israel), it contradicted the overarching U.S. strategy of containing Iran. Furthermore, normalized relations between Iran and its neighbors and a subsequent reduction in tensions would adversely impact key U.S. economic interests, particularly its arms sales to regional partners.
Conclusion
Despite the Raisi administration's pronounced commitment to a neighborhood policy, its practical implementation achieved limited success. The tangible outcomes were largely confined to a series of diplomatic visits to Oman and Qatar, and the restoration of relations with Saudi Arabia and the UAE. Given that Iran already maintained amicable ties with Oman and Qatar, these developments cannot be construed as a major strategic breakthrough. A genuine success would have required extending détente to other Gulf littoral states, such as Bahrain and Kuwait, and effectively keep them away from Israel.
The administration's efforts were curtailed by its short tenure and the tragic death of President Raisi in a helicopter crash on May 19, 2024, which brought an abrupt end to this foreign policy initiative. Concurrently, the international landscape shifted with the return of Donald Trump to power following the 2024 U.S. elections. His administration's posture emboldened Israel's aggressive policies in the region, leading to escalated conflicts with Palestine, Syria, Iran, and Yemen. These confrontations effectively sidelined the neighborhood policy and compelled Iran to undertake military operations such as "True Promise 1 & 2." Subsequent developments under President Masoud Pezeshkian have further demonstrated that the successful implementation of a sustainable neighborhood policy is likely unattainable without fundamental changes in Iran's relations with major powers and the resolution of its core foreign policy challenges. In the absence of such a strategic shift, Iran's neighborhood diplomacy can, at best, manifest as short-term tactical maneuvering rather than a coherent, long-term strategy.
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