Special Relationships

This post first appeared on the Commentary blog on December 2.

Last week, John Kerry appeared with British foreign secretary William Hague in London, and they congratulated one another on concluding their nuclear deal with Iran. Kerry expressed American gratitude for Britain’s support. “We are determined to press forward,” he said, “and give further life to this very special relationship and to our common objectives.”

It was President John F. Kennedy who first extended the concept of a “special relationship” beyond Britain to include Israel. In December 1962, Kennedy met with Israel’s then-foreign minister, Golda Meir, in Palm Beach, Florida, and the American memorandum of conversation reported his assurance in these words: “The United States, the President said, has a special relationship with Israel in the Middle East really comparable only to that which it has with Britain over a wide range of world affairs.”

The State Department disliked this. A few months earlier, the Near East and South Asia Bureau had put together a memo on U.S.-Israel relations. “Israel’s proposals for a special relationship with the U.S. would be self-defeating if executed,” it argued. “We consider it important not to give in to Israeli and domestic pressures for a special relationship in national security matters.” But Kennedy spoke the words, and even if their definition remained foggy, they provided some reassurance to Israel every time an American president or secretary of state uttered them.

Which is why it’s worth noting that John Kerry doesn’t utter them. To the best I can determine, in his present job, he hasn’t ever described the U.S.-Israel relationship as “special.” Susan Rice, while at the UN, did so on several occasions, and Senator Kerry did it when he ran for president back in 2004 and again to AIPAC in 2009. But as best as I can tell (and I would welcome contrary evidence), he hasn’t done it as secretary of state, and that stands in striking contrast to his repeated invocation of the “special relationship” with Britain.

For example, last February he visited London and said this (Hague beaming at his side):

When you think of everything that binds the United States and Great Britain—our common values, our long shared history, our ties of family, in my case, personal and friendship—there is a reason why we call this a special relationship, or as President Obama and Prime Minister Cameron wrote, really, a partnership of the heart. It is that.

In June, Kerry (again with Hague at his side) stressed the “special relationship,” which he declared to be “grounded in so much—our history, our values, our traditions. It is, without question, an essential, if not the essential relationship.”

And in September, when Britain’s parliament voted down a motion to join the U.S. in the use of force in Syria, Kerry rushed to declare the “special relationship” intact:

The relationship between the United States and the United Kingdom has often been described as special, essential. And it has been described thusly, quite simply, because it is. It was before a vote the other day in parliament, and it will be for long afterwards after that vote. Our bond, as William [Hague] has just said, is bigger than one vote; it’s bigger than one moment in history. It’s about values. It’s about rules of the road, rules by which human beings try to organize their societies and offer people maximum freedom and opportunity, respecting rights, and finding a balance in a very complicated world. And we have no better partner in that effort than Great Britain, and we are grateful for that.

Quite early, the Obama administration earned a reputation in British public opinion for showing insufficient respect for the “special relationship,” and Kerry may see his mission as repairing that impression. But then the Obama administration stands no higher in Israeli public opinion, and Kerry sees no need to do any work of repair (and a few things he has said have heaped insult on injury).

President Obama does refer to the “special relationship” with Israel, but coming from him, the phrase means a bit less than it once did. That’s because he’s upgraded Britain to something even higher. On the eve of Obama’s visit to Britain in May 2011, he and British prime minister David Cameron published a joint op-ed in the London Times that included this sentence: “Ours is not just a special relationship, it is an essential relationship—for us and for the world.” (The headline: “Not Just Special, But An Essential Relationship.”) Suddenly, the word “essential” started cropping up in references to the relationship with Britain (see also two of the Kerry quotes above). “Essential” is now the new platinum card in relations with the United States, and Britain alone holds one. (That’s why having Britain on board the Iran deal was so important to the Obama administration, and it’s why Hague was assigned the role of setting Israel straight: “We would discourage anybody in the world, including Israel, from taking any steps that would undermine this agreement and we will make that very clear to all concerned.” How pleased he must have been to categorize Israel among the world’s “anybodies.”)

Still, while Obama may have promoted Britain, he didn’t demote Israel. And as John Kennedy made clear more than fifty years ago, the two belong in a league of their own. Just what makes a “special relationship”? It’s more than democracy—the world is full of democracies. It’s not “shared values,” since American values are widely shared around the world. What compels the United States openly to acknowledge two “special relationships” is that two foreign states embody old cultures to which the American public feels profoundly and uniquely indebted.

Given that debt, the U.S. government assumes the obligation to show a bit of respect and work a little harder to make its case, when its biggest-knows-best policies impinge on the interests of those two states. When they dissent, as Britain did over Syria and Israel now does over Iran, it’s their privilege to do so and still win American praise as “special” friends who are entitled to speak their minds freely. For an example of how it’s done, see the Kerry quote above, following the British balk on Syria. So far, there’s no equivalent for Israel over Iran.

The U.S. government’s recognition of a “special relationship” doesn’t create a fact, it acknowledges a debt felt deeply by the American people. John Kerry apparently doesn’t fully grasp that reality in regard to Israel. But then, little in his Mideast diplomacy suggests that reality constrains him anyway.

Miss Lambton’s advice

Ann (Nancy) K.S. Lambton, the distinguished British historian of medieval and modern Iran, died on July 19 at the age of 96. Her obituaries tell some of her remarkable story as a pioneering scholar and a formidable personality. They are also interesting for what they omit, regarding her role in the idea of removing Mohammad Mossadegh from power in Iran.

The Independent obit says nothing. The Times obit makes an all-too-brief allusion: “She was consulted by British officials on developments in Irano-British relations, especially during the crisis in 1951 when Iran’s Prime Minister, Muhammad Mussadiq, caused a furore by nationalising British oil interests in Iran.” Yet we are not told exactly what she proposed in these consultations. The Telegraph is more explicit: “Lambton’s insights into the strengths and weaknesses of Iran’s then prime minister, Mohammed Mossadegh, proved a valuable aid to Britain’s eventual success, in concert with America, in precipitating an end to Mossadegh’s premiership and in ensuring a continued, though reduced, British share in Iran’s oil production.” Yet we are not told just how she imparted these “insights,” or why they were “valuable.” The Guardian quotes a historian as saying her advice “marked the beginnings” of the 1953 coup, but does not explain what she advised or how she had such a profound effect. So what is the fuller story behind these allusions?

In 1951, Ann Lambton was a Reader in Persian at the School of Oriental and African Studies, University of London. She had many connections in Whitehall, and her standing as an oracle on matters of Persian politics was unassailable. She had completed her doctorate in 1939 after a year of field work in Iran, and then spent the war years as press attaché in the British Legation (later Embassy) in Tehran, under the most seasoned of old hands, Sir Reader Bullard. She also came from a prominent landed family with assorted estates (including, yes, a Lambton Castle)—an advantage of pedigree that largely made up for what still was, in those days, a gender deficiency. When Nancy Lambton spoke, people listened—and when it came to Mohammad Mossadegh, she had strong views.

The historian Wm. Roger Louis first went through the British archives on the Mossadegh affair just after they were opened in the early 1980s, and he has told the story three times, in two books and an article (most recently here). “Here the historian treads on patchy ground,” warns Louis. “The British archives have been carefully ‘weeded’ in order to protect identities and indeed to obscure the truth about British complicity.” But he came across the minutes of conversations between Lambton and a Foreign Office official who described her as someone who knew Iran “better than anyone else in this country.”

Lambton, the official reported in June 1951, “was of the decided opinion that it was impossible to do business” with Mossadegh, and that no concessions should be made to him. She urged “covert means” to undermine his position, consisting of support for Iranians who would speak out against him, and stirring opposition to him “from the bazaars upwards.” The official added: “Miss Lambton feels that without a campaign on the above lines it is not possible to create the sort of climate in Tehran which is necessary to change the regime.” He then relayed her practical recommendation: entrust the mission to Robert (Robin) Zaehner, a quixotic Oxford don and former intelligence agent, fully fluent in Persian, whom Lambton described as “the ideal man” for the job. On Lambton’s recommendation, the Foreign Office dispatched Zaehner to Tehran, where he put together a network of disaffected opponents of Mossadegh’s regime.

This effort came to naught, partly because the Truman Administration still thought the British should deal with Mossadegh. In November 1951, Lambton complained: “The Americans do not have the experience or the psychological insight to understand Persia.” But she did not relent: “If only we keep steady, Dr. Mossadegh will fall. There may be a period of chaos, but ultimately a government with which we can deal will come back.” Anthony Eden, Foreign Secretary, added this note: “I agree with Miss Lambton. She has a remarkable first hand knowledge of Persians & their mentality.”

Yet Mossadegh hung on, and a year later he shut down the British diplomatic mission. According to Lambton’s Foreign Office contact, she thought that the British policy of not making “unjustifiable concessions” to Mossadegh “would have been successful had it not been for American vacillations,” and she insisted that “it is still useless to accept any settlement” with Mossadegh, “because he would immediately renege.”

This was the prevailing British view, and persistence ultimately paid off. In November 1952, Dwight Eisenhower was elected U.S. president, and the new team in Washington took a very different (and dimmer) view of Mossadegh. Anthony Eden met with the president-elect to discuss “the Persia question,” and the CIA’s Kermit Roosevelt and Donald Wilbur set in motion the wheels of the August 1953 coup—an American-led, joint CIA-MI6 production.

“In that [first] minute [of June 1951],” writes historian Louis, “may thus be found the origins of the ‘Zaehner mission’ and the beginnings of the 1953 coup.” Louis asserts that “the archives, for better or worse, link Professor Lambton with the planning to undermine Musaddiq.” He notes that “Lambton herself, as if wary of future historians, rarely committed her thoughts on covert operations to writing. The quotations of her comments by various officials, however, are internally consistent and invariably reveal a hard-line attitude towards Musaddiq.”

In the latest 2006 retelling of the tale by Louis, he has somewhat trimmed his estimate of Lambton’s role. “I have the impression from the minutes,” he writes in a footnote, “that the officials quoting [Lambton] sometimes wanted to invoke her authority to lend credibility to their own views.” Louis also adds that Lambton’s “views were entirely in line with those of other British authorities on Iran.” In other words, she was urging them to think or do something they already thought or wanted to do anyway, but for which they needed an authoritative footnote.

But there can be no doubt that her advice bolstered the advocates of toughing it out and bringing Mossadegh down. The obits tend to downplay this story because the 1953 coup has come to be seen as some sort of original sin—as the root cause of the Islamic revolution that unfolded a full quarter-century later. But wherever one puts the 1953 coup in the great chain of causation, Lambton’s assessments at the time should inspire awe. Years of experience in Iran, exact knowledge of Persian, and wide travels within the country, all had led her to conclude that Mossadegh could be pushed out, as against the view that he had to be accommodated. She was right. Given the propensity of Western experts on Iran to get so many things wrong over the years, Lambton’s call is all the more remarkable.

The present incumbents in power in Iran are careful to shut out Western Orientalists, not because they fear the situation in Iran will be misrepresented but because it might be accurately represented, exposing the weaknesses of their regime. The historian Ervand Abrahamian, mentioning Lambton (and Zaehner), writes that it should not be surprising that the coup “gave rise to conspiracy theories [among Iranians], including cloak and dagger stories of Orientalist professors moonlighting as spies, forgers, and even assassins. Reality—in this case—was stranger than fiction.” The reality is that it isn’t easy to hide one’s vulnerabilities from an intimate stranger such as Lambton. The fear of Orientalist professors, both there and here, has never been that they might get things wrong, but that they are very likely to get them right.

Originally posted at Middle East Strategy at Harvard.