Iran's Foreign Policy in Iraq and Syria After 2011 by Ezgi Uzun, Ph.D
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GRF Young Academics Program brings together young GLOBAL RELATIONS FORUM YOUNG ACADEMICS PROGRAM academics who are currently pursuing or have recently ANALYSIS PAPER SERIES No.6 completed their doctoral studies. The goal of this program is to provide a forum for accomplished young academics to discuss and debate long-term policy challenges. The GRF Young Academics Program Publications consist of policy and analysis paper series written by the GRF’s Young Academics. Iran’s Foreign Policy in Iraq and Through this program, GRF is establishing an expanding Syria after 2011 network of young academics to enrich policy discussions in both the national and international spheres. For more information about Global Relations Forum (GRF) and GRF Young Academics Program, you can visit: EZGİ UZUN www.gif.org.tr Ph.D. in Political Science, Sabancı University Ezgi Uzun, currently an instructor at Sabancı University in Istanbul, studies Iran’s foreign policy and security culture. Her wider research interests include the role of religion in international politics, transnational religious networks, sectarianism, religious insurgencies, and popular mobilization forces in the Middle East with a geographical focus on Iran, Iraq, and Syria. Her doctoral dissertation examines Iran’s “Axis of Resistance” policy in the Middle East, with a specific focus on the Islamic Republic’s religious ideology and ties to transnational Shia networks in Iraq and Syria. Her previous research concentrated on Iran’s nuclear program and its ramifi cations for regional power transitions. She has co-authored two publications on nuclear politics, “Bureaucrats, Ayatollahs, and Persian Politics: Explaining the Shift in Iranian Foreign Policy” and “The Path to an Entrenching Alliance: Utilitarianism and Historical Institutionalism in Committing to NATO’s Missile Defense System.” She was a visiting scholar at the Arnold A. Saltzman Institute of War and Peace Studies at Columbia University in New York from March 2017 to January 2018, and her research there was funded by the Scientifi c and Research Council of Turkey (TÜBITAK). She received her master’s and Ph.D. degrees in Political Science from Sabancı University in 2011 and 2018 respectively. She holds a bachelor’s degree in Translation and Interpreting Studies from Boğaziçi University in Istanbul. Global Relations Forum Yapı Kredi Plaza D Blok Levent 34330 Istanbul, Turkey T: +90 212 339 71 51 F: +90 212 339 61 04 www.gif.org.tr GLOBAL RELATIONS FORUM YOUNG ACADEMICS PROGRAM ANALYSIS PAPER SERIES No.6 Iran’s Foreign Policy in Iraq and Syria after 2011 EZGİ UZUN Ph.D. in Political Science, Sabancı University Global Relations Forum Young Academics Program Analysis Paper Series No.6 Iran’s Foreign Policy in Iraq and Syria after 2011 January 2020 © 2020 Global Relations Forum. All rights reserved. The financial rights to and the right to publish, dapt,a disseminate and reproduce this report belong to Global Relations Forum. This report shall not be reproduced, disseminated, printed or stored in any retrieval system, either in part, in its entirety or condensed form, whether by photocopy, facsimile, electronic mail or any other means without written permission of the publisher. ISBN: 978-605-80796-6-3 Publisher Certificate No: 22780 Printed in Turkey Gren Agency, Istanbul. www.grenajans.com Design and Layout Wodern Web Developing & Design Services www.wodern.com GLOBAL RELATIONS FORUM Yapı Kredi Plaza D Blok Levent 34330 Istanbul, Turkey T: +90 212 339 71 51 F: +90 212 339 61 04 www.gif.org.tr | [email protected] This publication can be downloaded at gif.org.tr CONTENTS About GRF iv About the GRF Young Academics Program v About the Author vi Abstract viii 1. Introduction 1 2. Recent Transformations in the Middle East 6 3. The Islamic Republic’s Discourses on the Middle East 8 after 2011 3.1. Islamic Awakening 8 3.2. Popular Mobilization 11 3.3. Resistance 13 4. Popular Mobilization in Iraq and Syria in the Post-Arab 15 Spring Period 4.1. Shia Armed Groups in Iraq and Syria 16 4.2. The Creation of Paramilitary Organizations 18 4.2.1. Hashd al-Shaabi / Popular Mobilization 23 Forces (PMF) 4.2.2. National Defense Units (NDF) 22 5. Conclusion 25 References 28 GRF Young Academics Program Publications 32 iii ABOUT GRF Global Relations Forum (GRF), founded in 2009 with the support of prominent Turkish leaders in business, government, and academia, is an independent, nonprofit membership association providing a platform for engaging, informing, and stimulating its members and all interested individuals in all matters related to international affairs and global issues. GRF intends to advance a culture that rewards the fertile tension between passion for intellectual diversity and dedication to innovative and objective synthesis. It nurtures uninhibited curiosity, analytic inquiry, rational debate, and constructive demeanor as the elemental constituents in all its endeavors. It contributes to the shared understanding of and aspiration for humanity’s path to peace, prosperity, and progress as an accessible, inclusive, and fair process for all. iv GRF Young Academics Program | Analysis Paper Series No.6 ABOUT THE GRF YOUNG ACADEMICS PROGRAM Global Relations Forum community programs aim to advance a culture of intellectual diversity, rational and constructive debate, and analytic coherence. The GRF Young Academics Program is distinct among these community initiatives in that it serves an additional but equally important objective. Through this program, GRF is establishing an expanding network of young academics that contributes to policy discussions in both the national and international spheres. The program is designed to culminate in the publication of either a policy or an analysis paper authored by the young academic, which is then published as part of the Policy Paper Series or the Analysis Paper Series. The author benefits from the experience of GRF members in crafting her paper. However, the publication reflects the views of the young academic and not the institutional views of GRF or the individual positions of the commission members. This paper, entitled “Iran’s Foreign Policy in Iraq and Syria after 2011” is authored by Dr. Ezgi Uzun as part of the GRF Young Academics Program Policy Paper Series. GRF convened the following group of distinguished members to evaluate and guide Dr. Ezgi Uzun’s paper: Memduh Karakullukçu Vice Chairman, GRF Selim Karaosmanoğlı Ambassador (R) Mustafa Kibaroğlu Professor of International Relations, MEF University Sönmez Köksal Ambassador (R), Former Undersecretary of State in charge of Turkish National Intelligence Organization GRF is grateful to all members who participated in the evaluation commission for their invaluable insights and informed guidance, as well as for the time and effort they dedicated to the program. GLOBAL RELATIONS FORUM Iran’s Foreign Policy in Iraq and Syria after 2011 v ABOUT THE AUTHOR Ezgi Uzun, currently an instructor at Sabancı University in Istanbul, studies Iran’s foreign policy and security culture. Her wider research interests include the role of religion in international politics, transnational religious networks, sectarianism, religious insurgencies, and popular mobilization forces in the Middle East with a geographical focus on Iran, Iraq, and Syria. Her doctoral dissertation examines Iran’s “Axis of Resistance” policy in the Middle East, with a specific focus on the Islamic Republic’s religious ideology and ties to transnational Shia networks in Iraq and Syria. Her previous research concentrated on Iran’s nuclear program and its ramifications for regional power transitions. She has co-authored two publications on nuclear politics, “Bureaucrats, Ayatollahs, and Persian Politics: Explaining the Shift in Iranian Foreign Policy” and “The Path to an Entrenching Alliance: Utilitarianism and Historical Institutionalism in Committing to NATO’s Missile Defense System.” She was a visiting scholar at the Arnold A. Saltzman Institute of War and Peace Studies at Columbia University in New York from March 2017 to January 2018, and her research there was funded by the Scientific and Research Council of Turkey (TÜBITAK). She received her master’s and Ph.D. degrees in Political Science from Sabancı University in 2011 and 2018 respectively. She holds a bachelor’s degree in Translation and Interpreting Studies from Boğaziçi University in Istanbul. vi GRF Young Academics Program | Analysis Paper Series No.6 Global Relations Forum Young Academics Program Analysis Paper Series No.6 Iran’s Foreign Policy in Iraq and Syria after 2011 Ezgi Uzun Ph.D. in Political Science, Sabancı University [email protected] Iran’s Foreign Policy in Iraq and Syria after 2011 vii Abstract While scholars of Iran’s foreign policy interpret the nuclear deal as a move towards pragmatism under the administration of Hassan Rouhani, the strong ideological contours of Iran’s simultaneous political and military engagement with Shia political movements in the Middle East is relatively underscored. This study thus seeks to examine the Axis of Resistance – a dense Iran-led alliance network of state and non- state actors covering a wide range of Shia mobilization activities across the Middle East. The study first maps out Iran’s foreign policy discourses addressing the political transformations in the Middle East at three critical junctures: the Iraq War of 2003, the Syrian civil war of 2011, and the rise of ISIL in 2014. This is followed by an analysis of how these discourses are translated into policy strategies, with a focus on Iranian support for Shia militias across Iraq and Syria and the development of popular mobilization units like Hashd al-Shaabi. The study shows that the discursive and organizational institutionalization of ‘religion’ in foreign policy has the capacity to reshape the existing military orders and to challenge power balances across the Middle East. This research is based on two field trips conducted in Tehran in the summers of 2015 and 2016, as well as data retrieved from Persian news sources and Iranian policy elites’ official websites.