О возобновлении переговоров между США и Ираном по иранской ядерной программе

10 февраля, 2021 | Автор: | Напечатать эту статью

Соединенные Штаты, по-видимому, не спешат вступать в переговоры с Ираном, который будет держать краткосрочные риски безопасности на Ближнем Востоке высокими, испытывая таким образом терпение Тегерана. Из Вашингтона идут противоречивые заявления об условиях возобновления переговорного процесса, что в принципе свидетельствует только о том, что в Госдепе США до конца не определились с определением алгоритма начала этого процесса, Здесь возникает дилемма: должны ли США вернуться к первоначальной сделке по иранской ядерной программе, а затем изучить возможность расширения ее сферы охвата на другие вопросы, такие как баллистические ракеты и региональная деятельность Ирана? Или же эти вопросы должны возникнуть в самом начале, что потребует де-факто нового переговорного процесса? Недавние комментарии госсекретаря Энтони Блинкена (именно его надо слушать в этой связи, а не президента Джо Байдена), похоже, оставляют обе возможности на столе. Существует растущий консенсус, как в США, так и в Европе о том, что невозможно вернуться к первоначальной сделке, подписанной всего шесть лет назад. Логика заключается в том, что военные достижения Ирана, наряду с его потенциалом твердой и мягкой силы в регионе, достигли высокого уровня, представляя собой новую и значительную угрозу интересам США и их союзников. К сожалению, никто так толком и не объяснил, как Иран, изолированный и жестко санкционированный посредством политики максимального давления, мог достичь таких блестящих результатов. Тегеран до сих пор отвергал альтернативные подходы, заявив, что он будет открыт только для возобновления первоначальной сделки. При этом он  не исключил категорически возможности обсуждения других вопросов при условии, что будут также учтены его законные интересы в области безопасности. Это означало бы иной и гораздо более всеобъемлющий переговорный процесс, включающий в себя архитектуру   безопасности для всего региона, с учетом всех ракетных программ, подрывной  деятельности и сделок с оружием, и причем не только касательно Ирана, но и других влиятельных региональных игроков. Готовы ли США, Израиль и арабские страны к такому сценарию? Сомнительно. Наконец, предполагая возвращение к той или иной форме сделки, возникает проблема, коренящаяся в простой логике: кто должен двигаться вперед первым? США создали кризис в 2018 году, в одностороннем порядке отказавшись от СВПД, поэтому следует, что первый шаг должен исходить из Вашингтона.  Но, к сожалению, такая логика не является заметной чертой нынешнего уровня международных отношений.  При этом Блинкен заявил, что Иран должен сделать первый шаг, вернувшись в полное соответствие с условиями СВПД, после чего США вернутся к сделке, которая, в любом случае, должна быть расширена по объему. Основная логика, лежащая в основе этой позиции, неясна. Конечно, публичные заявления обычно предназначены для политического позерства, и что действительно имеет значение, так это то, чем обмениваются стороны посредством неформальных каналов или во время конфиденциальных переговоров. И у США, и у Ирана есть ресурсы, чтобы сформировать спасительную «дорожную карту» возвращения к сделке, но тот факт, что 2021 год является годом выборов в Иране, не следует игнорировать. В Тегеране, как и в Вашингтоне, Иерусалиме и Эр — Рияде, есть сильная фракция «ястребов», которые не без оснований считают, что Иран при заключении СВПД, ограничил свою ядерную программу и не получил полного обещанного облегчения санкций. В качестве шага, который был расценен экспертами как косвенный позитивный сигнал со стороны администрации Дж.Байдена, Иран согласился на прошлой неделе освободить 19 членов экипажа захваченного судна под флагом Южной Кореи. В свою очередь, южнокорейское правительство обязалось рассмотреть жалобы Ирана на его неспособность получить доступ к 7 млрд долларов иранских денег, которые были заморожены в южнокорейских банках из-за американских санкций, вновь введенных администрацией Д.Трампа. На этом фоне Тегеран повышает ставки. Иран выдвинул ультиматум: если санкции не будут сняты до 21 февраля, Тегеран выгонит международных инспекторов из МАГАТЭ. В нем говорится, что иранцы уже начали обогащать уран на 20 %, что опасно близко к военному уровню. Вашингтон, тем временем, похоже, никуда не торопится. Но как только он, в конце концов, сядет за стол переговоров, у Европейского союза может появиться возможность подтолкнуть обе стороны к соглашению.2 февраля официальный представитель Госдепартамента США Нед Прайс заявил, что пока еще слишком рано рассматривать возможность прямого взаимодействия с Ираном или рассматривать какие-либо его предложения, сославшись на необходимость сначала проконсультироваться с внутренними заинтересованными сторонами Соединенных Штатов и глобальными партнерами о том, как двигаться вперед. Комментарии Прайса последовали за заявлением министра иностранных дел Ирана Мохаммада Джавада Зарифа, который 2  февраля в интервью телеканалу CNN  высказал предположение, что внешнеполитическое ведомство Евросоюза могло бы «хореографировать» действия Вашингтона и Тегерана по возвращению к соблюдению иранской ядерной сделки, официально известной как Совместный всеобъемлющий план действий (СВПД). По словам неназванного американского чиновника, процитированного в недавнем сообщении Reuters, комментарии Прайса не должны были восприниматься как отказ от предложения Зарифа. При этом многочисленные факторы указывают на то, что график консультаций Белого дома с Ираном может быть длительным:

  • Администрация Байдена в настоящее время находится в процессе смены американской внешней политики под руководством новой команды национальной безопасности. Этот процесс может занять месяцы, учитывая широкий диапазон желаемых изменений политики Байдена, которые все должны будут пройти через процесс межведомственного согласования, прежде чем быть реализованы.
  • За первые несколько недель своего пребывания на посту президента Байден уже подписал десятки указов, пересматривающих политику США по определенным вопросам. Но когда речь заходит о внешней политике, то, похоже, самым большим фокусом внимания президента будут американо-китайские отношения. Белый дом также  находится в процессе пересмотра своих двусторонних отношений с Саудовской Аравией, но в остальном он показал, что не спешит вести переговоры с ближневосточными партнерами.
  • Администрация Байдена намерена координировать аспекты своей политики в отношении Ирана с Израилем и Советом сотрудничества арабских государств Персидского залива (ССАГПЗ), которые по-прежнему испытывают дискомфорт в связи с перспективой  быстрого начала  переговорного процесса.

Как полагают американские эксперты, Европейский союз мог бы сыграть ключевую роль в организации и реализации возможного американо-иранского соглашения, хотя любая такая сделка, скорее всего, займет месяцы или даже годы, чтобы материализоваться из-за противоположных сроков достижения компромисса Вашингтона и Тегерана для возобновления соблюдения СВПД.  Однако обе стороны расходятся во мнениях относительно последовательности этого обмена мнениями. До интервью Зарифа иранские официальные лица требовали, чтобы санкции были приостановлены в первую очередь, поскольку Соединенные Штаты являются стороной, которая вышла из СВПД. Вашингтон, однако, утверждает, что не отменит никаких санкций до тех пор, пока Иран не начнет сворачивать свою ядерную деятельность. В политическом плане Тегерану или Вашингтону трудно полностью отказаться от своей противоположной позиции по срокам. Но предложение Зарифа в недавнем интервью CNN может открыть дверь для параллельного процесса в будущем, когда Соединенные Штаты и Иран одновременно предпримут синхронизированные шаги по возвращению к соблюдению СВПД путем сокращения санкций и ядерной деятельности соответственно. В 2019 году Франция и Европейский союз уже попытались договориться о том, что Иран получит некоторое облегчение санкций в обмен на замораживание своей ядерной программы. Помимо споров о сроках, июньские выборы в Иране также могут осложнить переговоры с Соединенными Штатами, поскольку голосование может привести к созданию более консервативного или жесткого правительства, в котором Зариф больше не будет ведущим переговорщиком Ирана.

Любая задержка в начале переговоров или достижении промежуточного соглашения вызовет обеспокоенность в области безопасности на Ближнем Востоке, подталкивая Иран к более агрессивным шагам в надежде оказать давление на администрацию Байдена. В ближайшие недели и месяцы Иран планирует еще больше активизировать свою ядерную деятельность, что потенциально вызовет негативную реакцию США или Израиля. Увеличение его ядерной активности позволяет Тегерану  предлагать новые  уступки для обеспечения ослабления санкций без необходимости сворачивать свою другую противоречивую деятельность в регионе. Она также держит открытой дверь для разработки ядерного оружия на случай провала его переговоров с Соединенными Штатами. В этой связи Иран также будет поддерживать сильную кибер-позицию на Ближнем Востоке, нацеливаясь на союзников США, таких как Саудовская Аравия, Объединенные Арабские Эмираты и Израиль. Иран также может решить опосредованно через свои прокси атаковать региональные нефтегазовые объекты, включая танкеры, но прямые атаки на саудовскую нефтегазовую инфраструктуру (как это было в 2019 году) менее вероятны. В Ираке поддерживаемые Ираном шиитские ополченцы также будут представлять постоянную угрозу для американских войск и баз.

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