EU-Iran relations: From Dialogue to Nuclear Talks

The paper will explore the evolution of the European Union’s relations with Iran between 1992 and 2015, arguing that Tehran’s foreign policy affected the way in which the Union framed its policy vìs-à-vìs the Islamic Republic only until 2003, when the nuclear crisis erupted.

The paper will start by briefly outlining the different phases of EU relations with Iran: it will first describe the goals and triggers of the Critical Dialogue (1992-1996) and of the Comprehensive Dialogue (1997-2003), both shaped and implemented by the Union’s formal institutions; it will then analyse the stages and objectives of the ad hoc initiative developed, outside of the Union’s legal framework, by the E3 countries (France, Germany and the United Kingdom, later joined by the High Representative for Common Foreign and Security Policy) on the Iranian nuclear issue (2003-2015).

The paper will argue that, between 1992 and 2003, the policy framed by the Union on Iran was strongly linked to which government and foreign policy was adopted in Tehran. In this phase, different level of engagement characterised bilateral relations on human rights, the Middle East Peace Process, terrorism and non-proliferation issues, whilst also economic interdependence changed during the Khatami administration, compared to the Rafsanjani presidency. The focus will then be shifted to how, on the other hand, throughout the negotiations on the Iranian nuclear issue, Tehran’s foreign policy no longer affected the framing of the EU policy toward Iran. This section will briefly explore the different foreign policies implemented by the administrations governing Iran between 2003 and 2015 (Khatami between 2003 and 2005, Ahmadinjead between 2005 and 2013 and Rouhani between 2013 and 2015); it will then argue that, despite the diverging foreign policies of the three administrations, the Union equally prioritised the nuclear dossier, sidelining all other issues. Even the choice to reduce economic interdependence with Iran from 2010 onward was the result of the Union’s heavier investment on economic pressure and unilateral sanctions, in line with the US preferences, rather than the consequence of Iran’s foreign policy.

The paper will conclude by arguing that, whether the EU takes into account Iran’s foreign policy when shaping its relations with Tehran thus depends on whether its policy is framed within or outside the Union’s legal framework.