Violence cannot end unless dialogue begins, and the dialogue must involve those who wield power, not simply those who hold political office. The United States must try to talk directly to Grand Ayatollah Sistani and must consider appointing a high-level American Shia Muslim to serve as an emissary to him. The United States must also try to talk directly to Moqtada al-Sadr, to militia leaders, and to insurgent leaders. The United Nations can help facilitate contacts.
RECOMMENDATION 35: The United States must make active efforts to engage all parties in Iraq, with the exception of al Qaeda. The United States must find a way to talk to Grand Ayatollah Sistani, Moqtada al-Sadr, and militia and insurgent leaders.
The very focus on sectarian identity that endangers Iraq also presents opportunities to seek broader support for a national reconciliation dialogue. Working with Iraqi leaders, the international community and religious leaders can play an important role in fostering dialogue and reconciliation across the sectarian divide. The United States should actively encourage the constructive participation of all who can take part in advancing national reconciliation within Iraq.
RECOMMENDATION 36: The United States should encourage dialogue between sectarian communities, as outlined in the New Diplomatic Offensive above. It should press religious leaders inside and outside Iraq to speak out on behalf of peace and reconciliation.
Finally, amnesty proposals from the Iraqi government are an important incentive in reconciliation talks and they need to be generous. Amnesty proposals to once-bitter enemies will be difficult for the United States to accept, just as they will be difficult for the Iraqis to make. Yet amnesty is an issue to be grappled with by the Iraqis, not by Americans. Despite being politically unpopular--in the United States as well as in Iraq--amnesty is essential if progress is to take place. Iraqi leaders need to be certain that they have U.S. support as they move forward with this critical element of national reconciliation.
RECOMMENDATION 37: Iraqi amnesty proposals must not be undercut in Washington by either the executive or the legislative branch.
The use of force by the government of Iraq is appropriate and necessary to stop militias that act as death squads or use violence against institutions of the state. However, solving the problem of militias requires national reconciliation.