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U. S. For ei gn Pol i c y and t he Cl i e nt St at e:I mpl i cat i o ns f or Domes t i c Pol i t i c sand Long- Ter m U. S. I nt er es t s i n I r an

Ph. D. Di s s er t at i on

Mar k J. Gas i or owskiDepar t ment of Pol i t i c al Sc i e nceUni v er s i t y of Nor t h Car ol i naChapel Hi l l . N. C.

J ul y 10, 19M

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1984Mar k J . Gasi orowskiALL RI GHTS RESERVED

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MARK J. GASI OROWSKI . U. S. For ei gn Pol i cy and t he Cl i ent St at e:I mpl i c at i ons f or Domes t i c Pol i t i cs and Long - T~r m U. S. I nt er e s t s i nI r an. ( Under t he di r ec t i on of Enr i que A. Bal oyr a. )

Thi s s t udy exam nes t he i mpact of a pa r t i cul a r k i nd of i nt er na-t i onal r el a t i ons hi p known as c l i enc y on t he domes t i c pol i t i cs oft he c l i ent c ount r y . Cl i enc y i s a s ec ur i t y - or i ent ed r el at i o ns hi pbet ween t wo count r i es whi ch di f f er gr eat l y i n t hei r s i ze, Weal t h,an d m l i t ar y and pol i t i cal power . The mos t v i s i bl e as pec t s of ac l i ency r el at i o ns hi p ar e f l ows of m l i t ar y and econom c ai d ,f or mal or i nf or mal s ecur i t y ag r eement s , and over t or c over t i nt er -vent i ons by t he pa t r on on beha l f of t he c l i ent gover nment . Themai n t he s i s of t hi s s t udy i s t hat c l i enc y can gr eat l y s t r engt hent he c l i ent gover nment v i s - a- vi s domes t i c pol i t i c al gr oups , t husc ont r i but i ng t o aut hor i t a r i ani sm and r educ i ng t he pr os pec t s f ordemoc r ac y i n t he c l i ent c oun t r y .

Thi s ar gument i s eval uat ed t hr ough a det ai l e d anal ys i s of t hepost war U. S. - I r an c l i enc y r el at i ons hi p and i t s ef f ec t on I r an' sdomes t i c pol i t i cs . Thi s r el at i onshi p can be dat ed f r om August1953, when I r ani an Pr i me Mi ni s t ~r Mohammad Mos s adeq was over t hr owni n a CI A- suppor t ed coup. The Uni t ed St at es pl ayed a c r uc i al r ol ei n t hi s c oup, and i n t he s ubs equent c ons ol i dat i on of power by t hes ha h. Over on e bi l l i on dol l ar s i n m l i t ar y and econom c ai d wasgi ven t o I r an under t he c l i en cy r el at i ons hi p i n t he decade f o l l ow-i ng t he coup. The Uni t ed St at es al s o pr ovi ded ext ens i ve t r ai ni ngf or I r an' s ar med f or c es and f or t he s ec r et pol i ce f or c e SAVAKunder t hi s r el at i ons hi p.

Thes e i ns t r ument s of U. S. pol i c y ha d a pr of ound i mpac t onI r an' s domes t i c pol i t i c s . The Mossadeq gov er nment over t hr own wi t hU. S. hel p was t he l a s t I r ani a n gover nment wi t h a democ r at i c c har -ac t er . U. S. m l i t a r y and econom c ai d, par t i c u l a r l y U. S. as s i st -

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ance t o SAVAK, was i nst rument al i n hel pi ng t he shah consol i dat ehi s di ct at or shi p. Hence, i nasmuch as U. S. pol i cy enabl ed t he shaht o est abl i sh a di ct at or shi p, t he U. S. - I ran cl i ency r el at i onshi phad a pr of ound and i mpor tant i mpact on I r an' s domest i c pol i t i cs.The l ong- t erm i mpl i cat i ons of t hi s pol i cy f or I r ani an pol i t i cs andf or U. S. i nt er est s ar e br i ef l y di scussed i n t he concl usi on of t hi sst udy.

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I n t r oduc t i o nChapt er 1- The Cl i enc y Rel a t i ons hi p and i t s Rol e i n Post warU. S. For ei gn Pol i c y .1) Def i n i t i ons of Cl i ency and t he Cl i ent St at eThe Cl i encv Rel at i ons hi p and i t s Mo t i vat i onsCl i ency I ns t r ument s .The Cl i ent St at e .2) Cl i ency and Ot her I n t er nat i onal Rel a t i o ns h i psDepe nde ncy .The Sat el l i t e Rel at i ons hi p . . . . . .Co l oni al i sm and I mpe r i a l i s m . . . . . . . . . .3) A Br i ef Over v l ew of Po s t war U. S. Cl i encv Rel at i ons hi psP o s t war U. S. Cl i ent s .U. S. Mo t i ves i n Es t abl i s hi ng Cl i e ncy Rel at i ons hi psFoot not es t o Chapt er 1Chap t e r 2 - The Cl i ent St at e1) The St at e and Soc i et y . . . . . . .Def i ni t i ons of St at e, Gover nment , and Regi meContend i ng Vi ews of St at e- Soc i et y Rel at i ons1' 1e cha nsms of Gr oup Lnf Luanc a .Summar y .2) The Pol i t i c al Economv of S t a t e - S oc i e t y Rel a t i ons3) The Pol i t i cs of t he Cl i ent St at e .The Rel at i ons hi p Bet ween Cl i ency and Aut hor i t a r i ani s mCl i ency and Re l a t i ve Au tonomyThe Cl i ent St at e .Consequenc es f or t he Cl i ent Soc i e t yFoot not es t o Chapt er 2 . . . .Chapt er 3 - Pr ol ogue: Domes t i c Pol i t i cs and For ei gn I nf l uencei n I r an Bef or e 1951 .1) The Gr eat Power s i n I r an, 1800- 1941 .2) The Pol i t i c s of I r a n, 1900- 1941 .The Soc i al St r uc t ur e of I r an Under t he Qaj ar sThe Cons t i t u t i onal Revol ut i on and i t s Af t er mat h, 1906- 1925The Regi me of Re2a Shah Pahl evi , 1925- 1941The Soc i al and Pol i t i c al St r uc t ur e of I r an under Rez a Shah3) Wor l d War I I and t he Pos t war Per i od, 1941- 1951I r ani an Pol i t i c s Dur i ng Wor l d War I I and i t s Af t er mat hThe Pos t war S t r uggl e f or Power i n I r anThe Emer ge nce of t he Nat i o nal F r ontFoot not es t o Chapt er 3 . . . . .Cha pt er 4 - U. S. I nt er es t s i n I r a n1) Oi l and U. S. Pol i c y Towar d I r a nMi ddl e Eas t Oi l Dur i ng Wo r l d War I IOi l 1n Pos t war U. S. F o r e i gn Pol i c y . .The Rol e of t he St at e i n U. S. Oi l Pol i c y . . . .2) The Evol ut i on of t he U. S. Cont ai nment St r at egy i nU. S. Pol i c y Dur i ng t he 1946 Cr i s i s . . . . . .

The Tr uman Doc t r i ne and i t s Af t er mat h . . . . .Th~ Reor i ent at i on of U. S. Pol i c y Towar d I r an: 1950Foot no t es t o Chapt er 4 .

I r a n"

Chapt er 5 - The Es t abl i s hment of a U. S. Cl i ent St at e,1951-1954 .1) I r an on t he Eve of Nat i onal i z at i onThe Oi l I s s ue .The I r ani an Pol i t i cal Scene i n 1951 .2) The Angl o- I r ani an Oi l Cr i s i s , 1951- 1952

CONTENTS

144 -47101213141617

IS22252727272934394044454950525659606465676972757580&38588909092949596101104107111113113115120

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The Angl o- I r ani an Oi l Negot i at i ons .Br i t i sh I nt~r v~nt i on i n I rani an Pol i t i cs .The U. S. Rol e i n t he Angl o- I r ani an Oi l Negot i at i ons3) The Downf al l of t he Mossadeq Gover nmentThe Coup of August 19. 1953 .The Post - Coup Consol i dat i on of Power4) I mpl i cat i ons f or I r an' s Domest i c Pol i t i csFoot not es t o Chapt er 5 .Chapt er 6 - The Consol i dat i on of a Cl i ent St at e1) The U. S. - I r an Cl i ency Rel at i onshi p. 1953- 1963M l i t ar y and Econom c Ai d .Secur i t y Assi st ance .The Evol ut i on of U. S. - I r ani an Rel at i ons2) The Foundat i ons of Di ct at or shi pThe Secur i t y For ces . . . . .Mechani sms of Cooptat i on3) The Shah and t he Opposi t i onThe Nat i onal Fr ont and t he Tudeh Par t yThe M l i t ar y .The Landowni ng Ar i st ocr acy and t he Cl er gy4) Cl i ency and Di ct at or shi p i n I r anFootnotes t o Chapt er 6 .Concl usi on - The Long- Term I mpl i cat i ons of Cl i ency1) I mpl i cat i ons f or I r ani an Pol i t i cs2) I mpl i cat i ons f or U. S. I nt er estsFoot not es t o t he Concl usi on

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I NTRODUCTI ON

Thi s st udy was f i r st concei ved dur i ng t he I r ani an r evol ut i on.I t was or i gi nal l y mot i vat ed by a desi r e t o under st and t he f i erceant i - Am~r i cani sm ~xpr~ss~d dur i ng t h~ r~vol ut i on and l at er dur i ngt he host age cr i si s. I t qui ckl y became evi dent at t hi s t i me t hatmost I r ani ans vi ewed t he Uni t ed St at es as havi ng pl ayed an i mpor -t ant r ol e i n nur t ur i ng t he shah' s di ct atorshi p. I r an had been amaj or U. S. cl i ent . The Un~t ed St at es had r est or ed t he shah t opower i n 1953 and suppor t ed hi m w t h econom c ai d and assi st ancef or hi s armed f or ces and secr et pol i ce. Thi s vi ew, i f t r ue, f l ewi n t he f ace of t he pr of essed U. S. goal of pr omot i ng democr acy andhuman r i ght s i n t he t hi r d wor l d. Fur t hermor e, i f t he Uni t ed St at eshad haLp'ed t he shah est abl i sh hi s dictt r ahip, and i f t hi shadcont r i but ed t o t he I rani an r evol ut i on, Then a s~r i ous er r or hadcl ear l y been made by U. S. pol i cymaker s. Regar dl ess of the benef i t sgai n~d i n t wenty- f i ve y~ar s of associ at i on w t h t he shah, t heom nous consequences of t he I r ani an r evol ut i on f or U. S. i nt er est swer e al r eady becom ng appar ent by t hi s t i me.

Moreover , whi l e t here was a r el uct ant w l l i ngness by t he CarterAdm ni st r at i on and by many Amer i cans t o accept some U. S. compl i ci -t y i n bui l di ng up t he shah, there was nei t her a precedent i n t hedomnant Amer i can pol i t i cal consci ousness nor a t heor et i cal f r ame-wor k f or under st andi ng how a cl i ency re l at i onshi p such as t he onemai nt ai ned w t h I r an coul d af f ect t he cl i ent ' s domest i c pol i t i cs.Vi et nam was not a usef ul gui de. To f ocus on t he consequences ofU. S. i nvol vement i n Vi et nam f or t hat count ry' s domest i c pol i t i csseemed t o m ss t he most i mpor t ant poi nt s. I n any case, t he Vi et namexper i ence was r egar ded by most Amer i cans as a ni ghtmar i sh aber -

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PAGE 2r at i on.

Nor di d U. s. pol i cy i n Lat i n Am~r i ca. t h~ r~gi on of t he t hi r dwor l d i n whi ch t he Uni t ed st at es has t r adi t i onal l y been most deep-l y i nvol ved, seem t o of f er many i nsi ght s. Al t hough t he U. S. i mpacton Lat i n Am~r i can pol i t i cs has been bl at ant . i t has been of a verydi f f e r ent f orm U. S. i nt er est s i n Lat i n Amer i ca have been pr i mar i -l y commer ci al r at her t han st r at egi c. U. S. econom c penet r at i on ofLat i n Amer i ca, st udi ed 50 i nsi ght f ul l y i n t he dependency l i t er a-tur e , has been of gr eat er consequence t han st at e- to - s t at er el at i ons. I t s i mpact has al so be~n Very di f f ~r ent . u . s . econom ct i es have shaped t he hi st or i cal evol ut i on of Lat i n Amer i can soci e-t i es and hence t hei r pol i t i cs. The di r ect i mpact of U. S. econom ct i es on t he pol i t i cal pr ocess i t sel f has been of l ess i mpor t ance.

Despi t e t he absence of a body of l i t er at ur e on t hi s subj ect ,t he phenomenon seemed wor t h st udyi ng. I r ani ans had suf f ered f ort went y- f i v~ year s under a di ct at or shi p suppor t ed by t he Uni t edSt ates. u . s . i nt erest s l n t he Per si an Gul f and t hr oughout t h~wor l d had been ser i ousl y damaged. Most i mpor t ant l y, t he phenomenonseemed t o occur el sewher e. sout h Kor ea and t he Phi l i ppi nesappeared t o be si m l ar cases wai t i ng t o erupt . The si t uat i on i nI r an m ght al so have usef ul i nsi ghts f or ot her u . s . al l i es i nCent r al Amer i ca, t he M ddl e East , and Sout heast Asi a.

Thr e~ mai n quest i ons have gui ded t hi s st udy. Fi r st , di d U. S.pol i cy act ual l y pr omot e di ct at or shi p i n I r an? I f so. how? Second.what were t he U. S. pol i cy goal s t hat l ed t o such an out come?Thi r d, assum ng t hat t hese goal s wer e consi dered vi t al t o u . s .nat i onal secur i t y, wer e t her e al t er nat i ves t o t he pol i c i esf ol l owed whi ch woul d have saf eguar ded U. S. i nt er est s w t houtpr oduci ng such di sast r ous consequences f or I r an?

Most of t hi s st udy i s concer ned w t h answer i ng t he f i r st of

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PAGE 3t hese quest i ons. The t heor et i cal f r amewor k devel oped f or t hi spur pose i s l ai d out mai nl y i n chapt er 2. Chapt er s 5 and 6 examneU. S. pol i cy i n I r cl n i n t hQ 19505 and Qar l v 19605 and i t s domes t i cpol i t i cal consequences. The second maj or quest i on pursued her e i sdeal t w t h i n gener al t erms i n chapt er 1 and mor e speci f i cal l y i nt he cont ext of I r an i n par t s of chapt er s 4- 6. The t hi r d i s consi d-er ed, but al l t oo br i ef l y, i n t he concl usi on of t hi s st udy.