European foreign ministers are scheduled to meet in Brussels Jan. 25-26 to consider additional sanctions against Iran for its continued defiance of nuclear negotiations. Said the European Union’s new British foreign policy chief, Catherine Ashton, “If we don’t have the rules kept to, then we have to take action in some form…Sanctions are something that will come up in the discussions.” [1] Since 2003, negotiations over Iran’s nuclear program have dominated diplomatic relations between the European Union (EU) and Iran.

Following is important background information about EU-Iran relations.

Although the EU is Iran’s largest trading partner, at this time all conventional political and economic talks between Iran and the EU are frozen due to Iran’s intransigence over its nuclear weapons program.[2] Iran has backed away from an Oct. 1 deal proposed by the P5+1 (China, France, Russia, the UK, the U.S. and Germany) requiring it to deliver more than 70 percent of its low-enrichment uranium to Russia and France for refinement into fuel.[3] Instead, Iran issued an ultimatum to the United States Jan. 2 warning that if the United States doesn’t accept Tehran’s counterproposal by the end of January it will commence reactor fuel production at increased levels of enrichment.[4]

In order to reach a nuclear deal with the Islamic Republic, the EU has pursued a dual-track approach, offering financial and technological benefits in return for Iranian cooperation, while threatening harsh sanctions if Tehran refuses.[5] Adding more complexity to the situation is the increasingly likely threat of a diplomatic crisis between Iran and the EU in the aftermath of the June 2009 Iranian presidential election, which could complicate European efforts to engage the regime in productive talks.[6]

Spain took over the EU’s 6-month rotating presidency from Sweden on Jan. 1. Under Spain’s helm the EU will have a more united and solid voice on the international scene, according to Diego Lopez Garrido, Spanish secretary of state for EU affairs.[7] Spain has in the past supported all EU resolutions condemning Iran but has not gone as far as France and the UK in its willingness to impose sanctions, opting instead for diplomatic engagement.[8]

After Iran tested two mid-range missiles capable of reaching the southeastern part of Europe on Sept. 28,[9] Iran tested an enhanced version of the missile on Dec. 17. “The updated version is faster, harder to shoot down and quicker to launch,” Iran's state media reported.[10] Iran's new missile test was seen as a “very bad signal” by French Foreign Minister Bernard Kouchner.[11]

Deadline for the EU

Iran has until the Jan. 25 foreign ministers’ meeting to allay EU concerns about its nuclear program, or it risks facing stronger sanctions.[12] Iranian President Mahmoud Ahmadinejad’s declarations that “Iran’s nuclear issue is over” and that the Islamic Republic “will never negotiate Iran’s undeniable rights” demonstrated clearly that the regime is not willing to cooperate with international demands to halt its nuclear program.[13] Kouchner said that Iran’s Nov. 29 decision to begin construction on 10 new uranium plants was an “infantile” move.”[14]

Since Iran has backed away from the agreement to ship its uranium to France and to Russia for processing,[15] announced more centrifuges and cracked down on demonstrators in Isfahan and Tehran, the EU’s sense of urgency has grown.

In language similar to that of the U.S., an EU statement prior to the 2009 UN General Assembly meeting declared that “Iran's persistent failure to meet its international obligations and Iran's apparent lack of interest in pursuing negotiations require a clear response, including through appropriate measures.”[16]

Gerard Araud, France’s ambassador to the UN told the UN Security Council in December 2009 that France was ready to begin drafting a sanctions resolution. A week later, Italian Foreign Minister Franco Frattini urged Iran to accept the uranium-exchange deal under the supervision of the International Atomic Energy Agency (IAEA).[17]

In a Jan. 18 meeting with Israeli Prime Minister Benjamin Netanyahu, German Chancellor Angela Merkel said, “We will work for more sanctions…We always called for transparency and cooperation with Iran, but unfortunately Iran has not responded.”[18]

Crisis with the United Kingdom and France over Arrests

Europe has been keen on criticizing Iran’s June 12, 2009 presidential election and the government’s violent crackdown. However, individual European member states each maintain different relationships with Iran.

On June 26, 2009, the United Kingdom became Iran’s first target in the aftermath of the presidential election. Iranian authorities arrested eight Iranian staff members at the British embassy, accusing them of having performed subversive activities and having played an active role in promoting and encouraging post-election protests.[19] Today, all but one prisoner have been discharged.[20]

Meanwhile, diplomatic ties between Iran and France have also been strained, mostly due to the case of Clotilde Reiss, a French university student detained in Iran. Iranian authorities arrested Reiss at Tehran Airport on July 1, 2009, for participating in post-election protests.[21] The charges against her were based on photographs she took during a demonstration in Isfahan. Ahmadinejad has suggested he would be willing to free Reiss if France agreed to release Iranian prisoners, but French Foreign Minister Kouchner voiced strong opposition to the idea. "It is out of the question ... We will not exchange anything…Reiss is a hostage.... She is innocent," said Kouchner.[22] French President Nicolas Sarkozy phoned Reiss as she was celebrating Christmas in the French embassy in Tehran and assured her of “his total support.”[23]

On July 2, 2009, Iran’s military chief of staff, Maj. Gen. Hassan Firouz-Abadi, blamed the EU for “interference in the postelection riots.” He added that, consequently, the EU had “lost its qualification” to be a partner in negotiations concerning the Iranian nuclear program.[24] 

Despite this hardening of Iran’s position toward Europe, the EU has only considered feeble responses, such as limited visa bans and recalling EU ambassadors.[25] Although Germany and Italy have spoken in favor of tightening sanctions, both remain Iran's biggest trading partners in the EU,[26] and both have rejected British and Czech calls for EU members to temporarily recall their ambassadors from Iran.[27]

June 12 Presidential Elections Exacerbate Tensions  

During the past seven months, Iran’s image has been tarnished by its behavior following the June 2009 presidential election. The widespread protests, met with government violence, not only undermined the legitimacy of the election results but also highlighted the human rights abuses by the Iranian regime.

Many Europeans leaders condemned the situation. They openly questioned the legitimacy of the election and called for a full recount of the results.[28]

On June 14, 2009, the EU presidency, at the time held by Mirek Topolanek of the Czech Republic, voiced concern about possible fraud in Ahmadinejad’s re-election, along with the ensuing government-sponsored violence. In a statement, Topolanek declared that he hoped Iran “will take its responsibility towards[the] international community and respect its international obligations…The EU presidency hopes that the outcome of the presidential elections will bring the opportunity to resume the dialogue on nuclear issue[s] and clear up the Iranian position in this regard.”[29]

The Iranian regime reacted swiftly and bitterly to international expressions of concern by accusing Europe and America of interfering with the election process through the EU’s “interventionist and insulting” statements.[30] On June 18 and 19, the European Council “firmly condemn[ed] the use of violence against protesters resulting in the loss of lives. The European Council urged the Iranian authorities to ensure that all Iranians are granted the right to assemble and to express themselves peacefully. The authorities should refrain from the use of force against peaceful demonstrations.”[31]

On Aug. 6, 2009, the EU’s then-spokesman Amadeu Altafaj Tardio announced that the EU would not send a congratulatory message to Ahmadinejad on his election win, as the EU customarily does to newly elected national leaders.[32] This was followed by a declaration by Javier Solana, the EU’s foreign policy chief at the time, in which he said that “we expected that the election process would be something clearly positive for the international community. Unfortunately what we have seen today is something very different.”[33]

When announcing his cabinet appointees on Aug. 20, 2009, Ahmadinejad reported that his new defense minister would be Ahmad Vahidi, suspected by Interpol of organizing an attack on the AMIA Jewish center in Buenos Aires, Argentina in 1994.[34] The Swedish prime minister declared Vahidi’s appointment to be “a provocation.”[35]

Recent violent clashes indicate an escalation in tensions and more unrest to come. France, Germany and European leaders have condemned the government crackdown on protestors.[36][37]

[2] “Brief history of relations between EU and Iran,” European Commission External Relations Web site, http://ec.europa.eu/external_relations/iran/relations_en.htm, accessed Jan. 20, 2010

[3] Kessler, Glenn, “Iran, Major Powers Reach Agreement On Series of Points,” The Washington Post, Oct. 2, 2009, http://www.washingtonpost.com/wp-dyn/content/article/2009/10/01/AR2009100101294.html

[4] Dareini, Ali Akbar, “Iran Warns West It Will Make Its Own Nuclear Fuel,” ABC News via AP, Jan. 2, 2010, http://abcnews.go.com/International/wireStory?id=9463630

[5] Ramin Mostagahim, Bourzou Daragahi, “Iran is offered incentives to halt uranium enrichment”, The Los Angeles Times, June 15, 2008, http://articles.latimes.com/2008/jun/15/world/fg-iran15   

[6] “EU to continue with twin-track approach on Iran”, Khaleej Times, Sept.  4, 2009, http://www.khaleejtimes.com/darticlen.asp?xfile=data/middleeast/2009/September/middleeast_September95.xml&section=middleeast  

[7] “Spanish EU presidency to highlight new top duo,” EU Business, Nov. 30, 2009, http://www.eubusiness.com/news-eu/treaty-spain.1q4/view; Lobjakas, Ahto, “Spanish Presidency To Take Reformed EU For A Test Drive,” Radio Free Europe/Radio Liberty, Dec. 29, 2009, http://www.rferl.org/content/Spanish_Presidency_To_Take_Reformed
_EU_For_A_Test_Drive/1916549.html      

[8] Farrar-Wellman, Ariel,  “Spain – Iran Foreign Relations,” AEI Iran Tracker, http://www.irantracker.org/foreign-relations/spain-iran-foreign-relations

[9] Peter Grier, "Iran missile tests: What they tell the West," The Christian Science Monitor, Sept. 28, 2009 http://www.csmonitor.com/2009/0928/p02s01-usfp.html  

[10] Cummins, Chip, “Iran Tests New Version of Missile that Can Reach Europe,” The Wall Street Journal, Dec. 17, 2009 http://online.wsj.com/article/SB126095076216093383.html?mod=WSJ_hpp_sections_world       

[11] "Iran's new missile test very worrying: France," Xinhua, Dec. 16, 2009,

http://news.xinhuanet.com/english/2009-12/17/content_12658725.htm?tr=y&auid=5730939

[12] Neuger, James G., “EU Weighs Tighter Sanctions on Iran, Sets Late-January Deadline,” Bloomberg, Dec. 9, 2009, http://www.bloomberg.com/apps/news?pid=20601085&sid=aUxSHuGfJWno  

[13] Nasseri, Ladane; Sheikholeslami, Ali, “Ahmadinejad Rules Out Nuclear Concessions, Urges Obama Debate,” Bloomberg, Sept. 7, 2009, http://www.bloomberg.com/apps/news?pid=20601086&sid=aa7mTee2kpoU   

[14] Vicusi, Gregory, “France’s Kouchner Calls Iran’s Nuclear Expansion ‘Infantile,’” Bloomberg, Nov. 30, 2009,

http://www.bloomberg.com/apps/news?pid=20601085&sid=av39uPEgW6Aw

[15] “Report: Iran will not ship uranium out of the country,” CNN, Nov. 7, 2009

http://www.cnn.com/2009/WORLD/meast/11/07/iran.uranium.shipment/index.html 

[16] Brand, Constant, “EU Makes New Appeal to Iran over Nuclear Program,” AP via ABC News, Sept. 4, 2009, http://abcnews.go.com/International/wirestory?id=8491142&page=1

[17] “Iran should respond positively to international demands or face sanctions - Frattini,” Kuwait News Agency, Dec. 17, 2009, http://www.kuna.net.kw/NewsAgenciesPublicSite/ArticleDetails.aspx?id=2047901&Language=en

[18] Dempsey, Judy, “Germany Supports Tougher Iran Sanctions,” The New York Times, Jan. 18, 2010, http://www.nytimes.com/2010/01/19/world/europe/19germany.html

[19] “Iran Arrests British Embassy Staff Members,” CBS News, June 28, 2009, http://www.cbsnews.com/stories/2009/06/28/world/main5119484.shtml      

[20] “Iran to free 8th British embassy staff”, China Daily, July 6, 2009,
http://www.chinadaily.com.cn/world/2009-07/06/content_8380554.htm

[21] “Sarkozy rejects Iran's offer on detainees, calls it 'blackmail,'” Sept. 23, 2009, http://www.google.com/hostednews/afp/article/ALeqM5jEjb6zJ1TiFGngranNZgV7qzgZWw  

[22] “French minister says sanctions for Iran a must,” AP, Dec. 21,2009, http://www.etaiwannews.com/etn/news_content.php?id=1138231&lang=eng_news

[23] “Sarkozy calls French academic on trial in Iran,” AFP, Dec. 24, 2009, http://www.google.com/hostednews/afp/article/ALeqM5i9Bgqd6PtsxfiSJqvhtu3lsYuCHg

[25] “EU angered over Iran trial threat,” Al Jazeera, July 3, 2009, http://english.aljazeera.net/news/europe/2009/07/200973112258929612.html          

[26] “Background Note: Iran,” U.S. Department of State, September 2009,

http://www.state.gov/r/pa/ei/bgn/5314.htm

[27] Charter, David, “British Calls For Diplomatic Walkout From Iran Are Rejected By EU Partners,” Times Online, July 3, 2009 http://www.timesonline.co.uk/tol/news/world/europe/article6626649.ece

[28] Communique issued by the Ministry of Foreign and European Affairs - Paris, June 23, 2009 http://www.ambafrance-ir.org/article.php3?id_article=894      

[29] “Czech EU presidency concerned about presidential polls in Iran,” The Prague Daily Monitor, June 15, 2009, http://praguemonitor.com/2009/06/15/czech-eu-presidency-concerned-about-presidential-polls-iran  

[30] Tran Mark, “European leaders condemn Iranian violence,” The Guardian (UK), June 16, 2009, http://www.guardian.co.uk/world/2009/jun/16/europe-iran-sarkozy-italy  

[31] “Brussels European Council 18/19, June 2009, Presidency Conclusion,” EUROPA Web site, June 19, 2009, http://europa.eu/rapid/pressReleasesAction.do?reference=DOC/09/2&format=HTML&aged=0&language=EN&guiLanguage=en    

[32] “EU shuns Ahmadinejad Iran re-election,” USA Today, Aug.  8, 2009, http://www.usatoday.com/news/world/2009-08-06-eu-iran-reelection_N.htm?csp=34  

[33] “EU’s Solana condemns post-election violence in Iran,” Reuters, June 23, 2009, http://www.reuters.com/article/latestCrisis/idUSLN193806       

[34] Pouladi, Farhad, “Ahmadinejad unveils cabinet with 11 new faces,” AFP, Aug. 20, 2009, http://www.google.com/hostednews/afp/article/ALeqM5hIWW8T_eFJsxjhrQbK30kIwHhWOw   

[35] “EU says ready for talks or confrontation with Iran,” AFP, Sept. 4, 2009,         http://www.google.com/hostednews/afp/article/ALeqM5gCufPCiM7XNMdfl06kVxWHh8NUEg   

[36] “Iran: la France ‘condamne les arrestations arbitraires et les violences,’" Le Monde, Dec. 27, 2009 http://www.lemonde.fr/web/depeches/0,14-0,39-41266210@7-37,0.html 

[37] “German and European leaders condemn Iran crackdown,” Deutsche Welle, Dec. 28, 2009 http://www.dw-world.de/dw/article/0,,5064447,00.html

[38] “Iran mulls downgrading ties with UK,” TimeTurk English, Jan. 19, 2010, http://en.timeturk.com/iran-mulls-downgrading-ties-with-uk--28583-haberi.html