Trita Parsi, a Middle East expert at the Carnegie Endowment for International Peace, said he obtained it from Iranian sources. The Washington Post confirmed its authenticity with Iranian and former U.S. officials.
Parsi said the U.S. victory in Iraq frightened the Iranians because U.S. forces had routed in three weeks an army that Iran had failed to defeat during a bloody eight-year war.
The document lists a series of Iranian aims for the talks, such as ending sanctions, full access to peaceful nuclear technology and a recognition of its "legitimate security interests." Iran agreed to put a series of U.S. aims on the agenda, including full cooperation on nuclear safeguards, "decisive action" against terrorists, coordination in Iraq, ending "material support" for Palestinian militias and accepting the Saudi initiative for a two-state solution in the Israeli-Palestinian conflict. The document also laid out an agenda for negotiations, with possible steps to be achieved at a first meeting and the development of negotiating road maps on disarmament, terrorism and economic cooperation.
Newsday has previously reported that the document was primarily the work of Sadegh Kharazi, Iran's ambassador to France and nephew of Iranian Foreign Minister Kamal Kharazi and passed on by the Swiss ambassador to Tehran, Tim Guldimann. The Swiss government is a diplomatic channel for communications between Tehran and Washington because the two countries broke off relations after the 1979 seizure of U.S. embassy personnel.
Leverett said Guldimann included a cover letter that it was an authoritative initiative that had the support of then-President Mohammad Khatami and supreme religious leader Ali Khamenei.
Secretary of State Condoleezza Rice has stressed that the U.S. decision to join the nuclear talks was not an effort to strike a "grand bargain" with Iran. Earlier this month, she made the first official confirmation of the Iranian proposal in an interview with National Public Radio.
"What the Iranians wanted earlier was to be one-on-one with the United States so that this could be about the United States and Iran," said Rice, who was Bush's national security adviser when the fax was received. "Now it is Iran and the international community, and Iran has to answer to the international community. I think that's the strongest possible position to be in."
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Richard N. Haass, head of policy planning at the State Department at the time and now president of the Council on Foreign Relations, said the Iranian approach was swiftly rejected because in the administration "the bias was toward a policy of regime change." He said it is difficult to know whether the proposal was fully supported by the "multiple governments" that run Iran, but he felt it was worth exploring.
"To use an oil analogy, we could have drilled a dry hole," he said. "But I didn't see what we had to lose. I did not share the assessment of many in the administration that the Iranian regime was on the brink."
