A reinvigorated diplomatic effort is required because it is clear that the Iraqi government cannot succeed in governing, defending, and sustaining itself by relying on U.S. military and economic support alone. Nor can the Iraqi government succeed by relying only on U.S. military support in conjunction with Iraqi military and police capabilities. Some states have been withholding commitments they could make to support Iraq's stabilization and reconstruction. Some states have been actively undermining stability in Iraq. To achieve a political solution within Iraq, a broader international support structure is needed.
1. The New Diplomatic Offensive
Iraq cannot be addressed effectively in isolation from other major regional issues, interests, and unresolved conflicts. To put it simply, all key issues in the Middle East—the Arab-Israeli conflict, Iraq, Iran, the need for political and economic reforms, and extremism and terrorism—are inextricably linked. In addition to supporting stability in Iraq, a comprehensive diplomatic offensive—the New Diplomatic Offensive—should address these key regional issues. By doing so, it would help marginalize extremists and terrorists, promote U.S. values and interests, and improve America's global image.
Under the diplomatic offensive, we propose regional and international initiatives and steps to assist the Iraqi government in achieving certain security, political, and economic milestones. Achieving these milestones will require at least the acquiescence of Iraq's neighbors, and their active and timely cooperation would be highly desirable.
The diplomatic offensive would extend beyond the primarily economic "Compact for Iraq" by also emphasizing political, diplomatic, and security issues. At the same time, it would be coordinated with the goals of the Compact for Iraq. The diplomatic offensive would also be broader and more far-reaching than the "Gulf Plus Two" efforts currently being conducted, and those efforts should be folded into and become part of the diplomatic offensive.
States included within the diplomatic offensive can play a major role in reinforcing national reconciliation efforts between Iraqi Sunnis and Shia. Such reinforcement would contribute substantially to legitimizing of the political process in Iraq. Iraq's leaders may not be able to come together unless they receive the necessary signals and support from abroad. This backing will not materialize of its own accord, and must be encouraged urgently by the United States.
In order to advance a comprehensive diplomatic solution, the Study Group recommends as follows:
RECOMMENDATION 1: The United States, working with the Iraqi government, should launch the comprehensive New Diplomatic Offensive to deal with the problems of Iraq and of the region. This new diplomatic offensive should be launched before December 31, 2006.
RECOMMENDATION 2: The goals of the diplomatic offensive as it relates to regional players should be to: