
对所有卷入其中的各方来说,伊朗战争是一场战略失败。美国和以色列已经证明,他们能够实现一些军事目标,例如击沉伊朗海军。但在经历了八个月的战斗和施压后,他们也证明了自己无法通过武力实现其主要雄心,包括更迭政权、摧毁伊朗的核计划,甚至无法重新开放霍尔木兹海峡——这条水道在战争爆发时并未关闭。伊斯兰共和国方面则证明了其能够在密集的轰炸中生存下来。然而,它无法打破美国军方在经济上令人窒息的封锁,迄今为止也未能实现结束对伊朗无限期战争威胁的目标。
For everyone involved, the war in Iran has been a strategic failure. The United States and Israel have shown that they can achieve a few military objectives, such as sinking Iran’s navy. But after eight months of fighting and pressure, they have also proved that they cannot forcibly realize their main ambitions, including regime change, destroying Iran’s nuclear program, or even reopening the Strait of Hormuz—a waterway that was not closed when the war began. The Islamic Republic, for its part, has demonstrated that it can survive intense bombings. Yet it cannot break the American military’s economically suffocating blockade and has thus far failed to achieve its goal of putting an end to indefinite threats of war against Iran.
从理论上讲,这场战争陷入痛苦的僵局本应为外交成果打开大门。但双方都被证明无法作出达成协议所需的妥协。相反,他们似乎更倾向于一种两败俱伤的现状,这种现状维持了能够取得胜利的幻想,并且他们可以通过继续对对手施加痛苦来为其合理化。因此,双方不仅没有走向解决,反而都在威胁要发动新一轮袭击。
In theory, the war’s descent into a painful stalemate should open the door to diplomatic outcomes. But both sides have proved incapable of making the concessions necessary to strike a deal. Instead, they appear to prefer a mutually destructive status quo that maintains the delusion of achievable victory and which they can justify with the continued pain they inflict on their adversaries. As a result, rather than moving toward a settlement, both sides are threatening renewed attacks.
但对于伊朗和美国而言,有一个可以保全面子的方式来摆脱这场冲突:由海湾阿拉伯国家斡旋并管理的停火。该协议将从海湾国家向伊朗提供经济纾困开始,作为交换,伊朗将解除对霍尔木兹海峡的限制。反过来,这也将允许美国解除自身的封锁。海湾国家还需承诺采取措施,阻止华盛顿未来恢复对伊朗的打击。但无论是美国还是伊朗,都不需要向对方做出直接让步,双方都可以避免最痛苦的妥协。
But there is a face-saving way for Iran and the United States to extricate themselves from this conflict: a cease-fire brokered and managed by the Gulf Arab states. The deal would begin with Gulf countries providing economic relief to Iran in exchange for Iran lifting its restrictions on the Strait of Hormuz. This would, in turn, allow the United States to lift its own blockade. The Gulf states would also need to commit to taking steps to deter Washington from resuming strikes on Iran in the future. But neither the United States nor Iran would need to make direct concessions to the other, and each would avoid the most painful compromises.
例如,美国不必解除其“极限施压”行动,伊朗也不必同意限制其核计划。随后,海湾国家可以利用其影响力维持停火,直到条件允许达成更全面的协议。
The United States, for example, would not have to lift its “maximum pressure” campaign, and Iran would not have to agree to limit its nuclear program. Gulf states could then use their leverage to sustain the cease-fire until conditions permit a more comprehensive agreement.
充当停火担保人对海湾地区而言伴随着真正的代价和风险,但这些国家有充分的理由接受它们。它们是伊朗战争所波及的战场的一部分,如果冲突无限期持续下去,可能会对其赖以建立的经济和政治模式构成威胁。海湾地区依赖石油和天然气出口来维持自身运转,且在将能源资源运往海外时,没有任何办法可以彻底绕过霍尔木兹海峡。与此同时,它们摆脱对碳氢化合物依赖的多元化努力也极易受到伊朗新一轮袭击的破坏。
Serving as the guarantor of a cease-fire comes with real costs and risks for the Gulf, but its countries have good reason to accept them. They are part of the battlefield on which the Iran war is being fought, and should the conflict continue indefinitely, it could pose a threat to the very economic and political models on which they are built. The Gulf depends on oil and gas exports to sustain itself, and there is no way it can completely bypass the Strait of Hormuz in shipping its energy resources abroad. Its efforts to diversify away from hydrocarbons, meanwhile, are also vulnerable to renewed attacks from Iran.
达成停火将并非易事。这要求海湾国家克服自身的凝聚力不足,要求伊朗将经济复苏置于优先地位并放弃对美国行为的明确担保,也要求美国给予海湾国家达成协议所需的空间。即使成功,由此产生的协议也无法解决驱动战争的根本问题。但鉴于前景中几乎没有其他替代方案,这是缓解各方痛苦的最好——或许也是唯一——途径。
Securing a cease-fire will not be easy. It requires that the Gulf countries overcome their own lack of cohesion, that Iran prioritize economic recovery and forgo explicit guarantees about U.S. behavior, and that the United States gives Gulf countries the space necessary to reach a deal. Even if successful, the resulting agreement will not address the underlying issues driving the war. But with scant alternatives on the horizon, it is the best—and perhaps the only—way to ease the pain for everyone.
体面收场 理论上,美伊协议本应很简单。伊朗与美国之间达成交易有历史模板可循——德黑兰同意约束或放弃某种特定行为,华盛顿则同意给予其资金和承认——这一模式完全可以套用到当前的冲突中。例如,在1981年的《阿尔及尔协议》中,伊朗同意释放其扣押的美国外交官,以换取冻结资金的解冻以及美国承诺不干涉伊朗内政。
SAVING FACE In theory, a U.S.-Iranian agreement should be straightforward. There is a historical template for deals between Iran and the United States—Tehran agrees to constrain or give up a specific behavior, and Washington agrees to give it money and recognition—that could apply neatly to the current conflict. In the Algiers Accords of 1981, for instance, Iran agreed to release American diplomats it held hostage in exchange for frozen funds and a commitment by the United States not to intervene in Iran’s internal affairs.
在2015年的伊核协议中,德黑兰接受了对其核计划的严格限制,以换取制裁缓解以及对其铀浓缩权利的默认承认。如今,伊朗可以停止阻碍霍尔木兹海峡的海上通行(并或许最终在核计划上做出让步),而华盛顿可以给予其制裁缓解、现金以及承认德黑兰在该水道拥有正式角色等某种组合形式的回报。
In the 2015 nuclear deal, Tehran accepted strict limits on its nuclear program in return for sanctions relief and an implicit acceptance of its right to enrich uranium. Today, Iran could stop impeding maritime traffic through the Strait of Hormuz (and perhaps eventually make concessions on its nuclear program), and Washington could grant it some combination of sanctions relief, cash, and acknowledgment of Tehran having a formal role in the waterway.
然而在实践中,达成这种共识将极其困难。原因之一是技术层面的:伊朗不会做出美国总统唐纳德·特朗普想要的核让步,而美国也不会提供德黑兰所要求的预先且不可逆转的财政激励。但更大的问题在于声誉。为了证明其堂吉诃德式的战争以及退出2015年核协议的决定是正当的,特朗普希望德黑兰做出全面让步。就伊朗而言,它极不愿意接受比其在双方命运多舛的6月谅解备忘录中从美国获得的利益更少的筹码,华盛顿当时在该备忘录中承诺提供大量的制裁减免。因此,双方都觉得有必要维持对抗,尽管这样做对双方都是有害的。
In practice, however, reaching this understanding will be extremely difficult. One reason is technical: Iran won’t make the nuclear concessions that U.S. President Donald Trump wants, and the United States will not provide the upfront, irreversible financial incentives that Tehran demands. But the bigger problem is reputational. To justify his quixotic war and decision to withdraw from the 2015 nuclear deal, Trump wants sweeping concessions from Tehran. Iran, for its part, is loath to settle for fewer benefits than it received from the United States in their ill-fated June memorandum of understanding, in which Washington pledged significant relief. As a result, both sides feel compelled to sustain the confrontation, even though doing so is mutually detrimental.
海湾国家无法解决有关伊朗核计划的争端。但它们可以通过协助解决其他核心问题来带来相对和平。美国可能不愿意仅仅为了伊朗开放霍尔木兹海峡而向其支付费用,但其海湾伙伴拥有财富和动力向该政权提供即时的经济让步。例如,这些伙伴可以向伊朗提供某种形式的人道主义和重建资金。作为回报,伊朗将停止对过往海峡船只以及海湾国家自身的袭击。
The Gulf states cannot resolve the dispute over Iran’s nuclear program. But they can bring about relative peace by helping address other essential issues. The United States may not be willing to pay Iran for merely opening the Strait of Hormuz, but its Gulf partners have the wealth and the motivation to offer the regime immediate economic concessions. Those partners could, for instance, give Iran some form of humanitarian and reconstruction funding. Iran, in turn, would stop attacks on ships transiting the strait and on Gulf states themselves.
为了回应伊朗停止对商业活动的袭击,美国将解除自身的封锁,海湾国家和伊朗将为航运建立一个临时的冲突降级机制,该机制承认伊朗在该水道中的作用,但不会为国际贸易树立不可接受的先例。该机制可能要求船只使用伊朗偏好的航行模式,但不会将伊朗对该通道的控制权正式化。
In response to Iran ceasing its attacks on commerce, the United States would lift its own blockade, and the Gulf states and Iran would establish a temporary deconfliction mechanism for shipping that acknowledges Iran’s role in the waterway without establishing unacceptable precedents for international commerce. This mechanism could require that ships use Iran’s preferred traffic pattern but would not formalize Iranian control over the passage.
这种特定安排无法解决伊朗的另一个核心目标——禁止美国和以色列发动新的军事行动。这一顾虑更难化解。美国可能缺乏可信的军事终局,且战争在国内可能不受欢迎,但这并未阻止反复无常的特朗普制定新的军事行动计划。但海湾国家可以向伊朗提供保证,即它们将利用对华盛顿的影响力,帮助遏制未来的袭击。例如,5月,科威特和沙特阿拉伯因担忧美国护航商船通过霍尔木兹海峡的计划,暂时暂停了美国的准入、基地使用和领空飞越权——即允许美军使用海湾国家领土和领空的批准。这一战术奏效了:美国暂停了该行动。海湾国家将需要加强内部凝聚力。
This particular arrangement would not resolve Iran’s other core objective—prohibiting the United States and Israel from launching a renewed military campaign. This concern is harder to address. The United States may lack a credible military endgame, and the war might be unpopular domestically, but that has not stopped an erratic Trump from drawing up plans for renewed military action. But the Gulf states can provide Iran with assurances that they would use their leverage with Washington to help deter future attacks. For example, in May, Kuwait and Saudi Arabia temporarily paused U.S. access, basing, and overflight—the approvals that allow the United States military to use Gulf countries’ territory and air space—because of concerns about the United States’ plans for escorting merchant ships through the Strait of Hormuz. The tactic worked: the United States paused the operation. The Gulf states will need to improve internal cohesion.
美国可能会对将与伊朗的谈判交给海湾国家感到不快。但最终,美国官员应当能够将这项协议包装为一场胜利。例如,特朗普可以在告诉美国民众他避免了高能源价格、且未像奥巴马政府在2015年协议中那样向伊朗做出经济和核让步的情况下退出战争。他同样可以吹嘘自己采取的削弱伊朗措施,并在没有核协议的情况下指出,他自称的“极限施压”制裁依然生效。
The United States might bristle at handing Iran negotiations over to the Gulf countries. But ultimately, U.S. officials should be able to spin this deal as a win. Trump, for instance, could exit the war while telling Americans that he saved the world from high energy prices without making the kind of economic and nuclear concessions to Iran that the Obama administration did under the 2015 agreement. He could likewise boast about the steps he took to weaken Iran, and, in the absence of a nuclear deal, point out that his self-proclaimed “maximum pressure” sanctions remain in place.
事实上,在某些方面,由海湾国家斡旋的协议正是特朗普承诺的那种“美国优先”外交政策。它将让该地区承担起管理一个“恶性行为体”的负担,包括提供所需大部分让步的责任。特朗普将是误打误撞达成这一结果。但他仍将留下一组更有能力管理自身安全的强势盟友。
In fact, in some ways, a Gulf-brokered deal is exactly the kind of “America first” foreign policy Trump promised. It would let the region take on the burden of managing a bad actor, including responsibility for providing most of the necessary concessions. Trump would have stumbled into the outcome. But he would still leave office with an empowered set of allies more capable of managing their own security.
伊朗不仅能获得巨大的经济利益,还可能推进其减少美国在该地区影响力的目标。毕竟,如果以色列或美国日后破坏了一项协议,只会加速华盛顿与其海湾伙伴之间的信誉和影响力衰落。美国通过对伊朗发动战争,已经使其与这些国家的关系承受了压力,而这是它们并未要求的,且所有这些国家都为此遭受了严重后果。因此,海湾国家协议将使德黑兰得以利用任何未来针对伊朗的美国军事行动,进一步挑拨美国与其地区伙伴之间的关系。
Iran, for its part, would not only get significant economic benefits. It might also advance its goal of reducing the United States’ influence in the region. After all, if Israel or the United States undermines an arrangement down the road, it will only accelerate the decline of Washington’s credibility and influence with its Gulf partners. The United States has already placed its relationship with these countries under stress by going to war with Iran, something they did not ask for and for which all have suffered serious consequences. A Gulf state deal would thus allow Tehran to leverage any future U.S. military campaigns against Iran to further drive a wedge between the United States and its regional partners.
伊朗一再明确表示,其与战争相关的首要任务是以降低未来冲突可能性的条件结束战争。在某种程度上,伊朗通过对全球经济造成的痛苦,已经达到了这一基准。假设这场战争最终结束,下次当以色列总理请求美国总统批准对伊朗的攻击时,这位总统将不得不权衡全球经济的不稳定与以色列的安全利益。在没有发生核突破或大规模恐怖袭击的情况下,伊朗构成的威胁可能不会超过对全球经济的风险。
Iran has repeatedly made clear that its top war-related priority is to end the war on terms that reduce the likelihood of a future conflict. To some extent, Iran has already achieved this benchmark with the pain it has inflicted on the global economy. Assuming this war eventually ends, the next time an Israeli prime minister asks an American president to approve an attack on Iran, that president will have to weigh global economic instability against Israeli security interests. The threat posed by Iran, in the absence of a nuclear breakout or massive terrorist attack, may not outweigh the risk to the global economy.
以色列可能会在没有美国参与的情况下采取行动,但这样做将冒着进一步损害美以关系的风险,并招致没有美国保护的伊朗报复。
Israel might act independently of the United States, but doing so would risk further damaging the U.S.-Israeli relationship and invite Iranian retaliation without American protection.
但这种威慑只有在当前这轮战争结束后才会有效。如果战争继续下去,伊朗将失去霍尔木兹海峡和地理条件所提供的未来事实上的安全保障。这场冲突持续的时间越长,就越对以色列或美国那些主张政权更迭或无休止战争的人有利。除非能找到解决高能源价格的办法,从而让特朗普能够从伊朗抽身,否则他将继续盲目抓取,这最终可能导致他采取迄今尚未尝试过的激进军事行动——而且这种尝试是有充分理由的。
But this deterrent is effective only once the current iteration of the war ends. If the war continues, Iran will forfeit the future de facto security guarantee that the Strait of Hormuz and geography provide. The longer this conflict goes on, the more it favors those in Israel or the United States advocating for regime change or endless war. Unless there is a solution to high energy prices that allows Trump to disengage from Iran, he will continue grasping, and it could eventually lead him to adopt aggressive kinetic options that have not yet been tried- and for good reason.
最坏情况下的最佳选择 伊朗和海湾国家已经在探索由地区主导的冲突解决方案。10月26日,沙特官员前往德黑兰,与伊朗同行以及来自巴基斯坦和土耳其的领导人举行了会晤。海湾国家原本还计划于9月14日在阿曼萨拉莱与伊朗会晤,讨论霍尔木兹海峡的问题。但那次聚会最终没有举行,除非有更广泛的地区解决方案,否则海湾国家将转而主要寻求与伊朗达成私下、双边的协议,以帮助防止未来对其船只或领土的袭击。
THE BEST BAD OPTION Iran and the Gulf countries are already exploring regionally led solutions to the conflict. On October 26, Saudi officials traveled to Tehran to meet with their Iranian counterparts, alongside leaders from Pakistan and Turkey. Gulf countries had also planned to meet with Iran in Salalah, Oman, on September 14 to discuss the Strait of Hormuz. But that gathering never happened, and unless there is a broader regional solution, Gulf countries will instead mostly pursue private, bilateral deals with Iran to help forestall future attacks on their ships or territory.
这些协议或许有助于在短期内减轻各个海湾国家的痛苦,但它们无法解决伊朗升级局势的整体风险,也无法解决与霍尔木兹海峡相关争端所带来的全球后果。此外,它们还允许伊朗挑拨海湾国家之间的分歧和不信任,同时不断提高自身的诉求。
These agreements might help lessen the pain for individual Gulf countries in the short term, but they fail to address the overall risk of Iranian escalation or resolve the global consequences stemming from disputes related to the Strait of Hormuz. Furthermore, they allow Iran to stoke division and distrust between Gulf countries while driving up its own demands.
为了达成一份可行的协议,海湾国家因此需要改善内部凝聚力。这说起来容易做起来难,特别是鉴于海湾地区的两个主要大国——沙特阿拉伯和阿拉伯联合酋长国之间持续存在紧张关系。但解决这个问题完全在海湾国家的能力范围内,“萨拉拉行动”表明各方对此有一定兴趣。提高海湾国家之间的凝聚力,也不需要解决该地区各首都之间更广泛的双边紧张关系和竞争;它只需要达成一项协议,将伊朗问题与这些紧张关系隔离开来,并着手解决这一共同当务之急。
To get a workable deal, the Gulf states will thus need to improve internal cohesion. This is easier said than done, particularly in light of continued tensions between two of the major Gulf players—Saudi Arabia and the United Arab Emirates. But fixing this issue is wholly within the power of Gulf states, and the Salalah effort demonstrates there is some interest in doing so. Improving cohesion among Gulf states also does not require resolving the larger bilateral tensions and competition among the region’s capitals; it only requires an agreement to isolate the Iran issue from those tensions and address this shared imperative.
因此,海湾国家必须集体商定针对伊朗行为的红线,并就如何执行这些红线进行协调。如果伊朗试图试探该协议或向海湾各国政府索取更多让步,它们必须通过暂停经济援助或合作来进行集体回击——即使这意味着冒遭受伊朗报复的风险。
The Gulf states must therefore collectively agree on redlines for Iranian behavior and coordinate on how to enforce them. If Iran seeks to test the agreement or demand more concessions from Gulf governments, they must collectively push back by pausing economic aid or cooperation—even if it means risking Iranian retaliation.
海湾国家和伊朗也将受到胡塞武装的考验。沙特阿拉伯将针对其领土的胡塞武装袭击归咎于伊朗,这是可以理解的,因为伊朗帮助构建了该组织的能力,继续为其提供重大的技术和物质支持,并推波助澜促成了也门冲突在7月份的再次升级。但伊朗并不控制胡塞武装,因此该组织不会仅仅因为伊朗开口,就停止袭击沙特阿拉伯或取消其在也门国内的军事行动。
The Gulf states and Iran will also be tested by the Houthis. Saudi Arabia understandably holds Iran accountable for Houthi attacks on its territory because Iran helped build the group’s capabilities, continues to provide it with significant technical and material support, and helped trigger the re-escalation of the Yemen conflict in July. But Iran does not control the Houthis, so the group is not going to stop attacking Saudi Arabia or call off its campaign inside Yemen simply because Iran says to.
因此,德黑兰需要向利雅得伸出橄榄枝,表明其愿意限制对当前胡塞武装针对沙特阿拉伯袭击的直接介入。例如,伊朗可以向利雅得切实承诺,德黑兰支持的伊拉克民兵将停止袭击该王国。毕竟,正是在伊拉克民兵的袭击之后,该国价值巨大的东西向输油管道才于9月10日被迫停运,而抵御来自北方(沙特阿拉伯与伊拉克接壤处)和南方(与也门接壤处)的双线袭击,大大使利雅得本已捉襟见肘的防空工作变得更加复杂。
Tehran will thus need to extend an olive branch to Riyadh by showing that it is willing to limit its direct involvement in the current Houthi attacks against Saudi Arabia. For instance, Iran could credibly promise Riyadh that Tehran-backed Iraqi militias will stop attacking the kingdom. It was, after all, Iraqi militia attacks that took the kingdom’s valuable East-West oil pipeline offline on September 10, and defending against attacks from both the north (where Saudi Arabia borders Iraq) and south (where it borders Yemen) greatly complicates Riyadh’s already strained air defenses.
这些达成协议的努力仍有可能功亏一篑。即便海湾国家克服内部的分歧并暂时搁置对胡塞武装活动的担忧,德黑兰和华盛顿也可能拒绝签字。伊朗可能会断定,控制海峡以及扼制能源市场的能力是其最佳安全保障,而美国甚至可能难以含蓄地承认战争将无法达到其领导人所承诺的结果。即便停火协议确实奏效,对于美国及其海湾伙伴而言,结果也远非理想。
These efforts to craft a deal might still come up short. Even if the Gulf states overcome their internal divisions and sideline concerns about Houthi activity, Tehran and Washington could refuse to sign on. Iran could conclude that control of the strait and the ability to throttle energy markets is its best security guarantee, whereas the United States might struggle to even implicitly acknowledge that the war will not achieve the outcome its leaders promised. And even if the cease-fire agreement does work, the result will be far from ideal, for both the United States and its Gulf partners.
它可能会助长伊朗加强对该海峡的控制,并可能削弱美海湾国家伙伴关系。更糟糕的是,它未能解决导致美伊冲突以及伊朗与邻国之间紧张局势的根本问题,即德黑兰的核计划以及对武装团体的支持。
It could encourage Iran to increase its control over the strait, and it could weaken U.S.–Gulf state partnerships. Worse yet, it fails to address the underlying issues driving the U.S.-Iranian conflict and the tensions between Iran and its neighbors: Tehran’s nuclear program and support for armed groups, respectively.
但全面达成伊朗协议在今天并不可行。由海湾国家斡旋达成霍尔木兹海峡的协议是可行的。事实上,这可能是打破一场势必持续数年并对全球市场造成不断加剧的损害的“互伤僵局”的唯一途径。随着各国耗尽战略储备、中国需求增加以及来自海湾地区的替代供应路线遭到伊朗袭击,各国为减轻全球石油和天然气短缺后果而采取的策略可能在2027年开始捉襟见肘。
But a comprehensive Iran deal is not feasible today. A Gulf-brokered outcome on the Strait of Hormuz is. In fact, it may be the only way to stop a mutually hurting stalemate that is poised to last years and cause mounting damage to global markets. The strategies that states have employed to blunt the consequences of global oil and gas shortages will likely start wearing thin in 2027, as governments deplete their strategic reserves, Chinese demand increases, and alternative supply routes out of the Gulf come under Iranian attack.
冲突的经济后果甚至可能破坏最脆弱的海湾国家的国内稳定,或重新点燃旧日冲突,就像今年也门发生的那样。因此,由海湾国家斡旋达成的协议是最不坏的结果。这场冲突的讽刺之处正在于此:那些已经损失惨重的旁观者,将需要把交战各方从他们自己手中拯救出来。
The economic consequences of the conflict could even undermine the domestic stability of the most vulnerable Gulf states or reignite old conflicts, as happened in Yemen this year. A Gulf-brokered deal, then, is the least bad outcome. Such is the irony of this conflict: the bystanders that have already lost the most will need to save the warring parties from themselves.