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Syria talks showcase chasm in positions. What was US expecting?

Whether Assad could be part of a transitional Syrian government elicited sharp disagreement at the talks, suggesting US hopes for the forum were modest, perhaps just a series of small steps.

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Martial Trezzini/Keystone/AP
Syrian Foreign Minister Walid al-Moallem, attends the Geneva II peace talks on Syria in Montreux, Switzerland, Jan. 22. The Syrian peace talks begin with a bitter clash over President Bashar Assad's future.

Secretary of State John Kerry鈥檚 insistence at the opening of a Syria peace conference Wednesday that there is 鈥渘o way possible鈥 for Bashar al-Assad to be part of a transitional government that would take Syria out of its civil war does not mean the Syrian leader is any closer to leaving power.

President Obama has been making the same vow since August 2011, and if anything Mr. Assad is more securely entrenched in power in Damascus now than he was then.

Almost no one believes the international conference that opened in Montreux, Switzerland, Wednesday will lead anytime soon to Assad鈥檚 departure 鈥 or to an end to fighting that has left more than 120,000 Syrians dead and at least 20 percent of the population displaced. But if that is so, why were Mr. Kerry and the US so adamant that the conference take place?

One explanation is the hope that the international gathering, or more likely the talks between warring Syrian factions scheduled to get under way Friday in Geneva, might lead to small but potentially critical steps like localized cease-fires and accords on improved humanitarian access.

Another possibility some diplomatic experts cite is that, simply by taking place, the conference ramps up pressure on the internal and external players to keep open diplomatic channels for resolving a conflict that almost everyone agrees is not going to be settled on the battlefield.

Then for some is the possibility that Kerry 鈥 who spoke repeatedly before the conference about the 鈥渓ong road鈥 ahead 鈥 understood the long odds for success but did not want his tenure as secretary of state summed up with the headline, 鈥渉e did nothing while Syria burned.鈥

鈥淜erry may have been motivated by wanting to protect his diplomatic legacy,鈥 says James Phillips, a Middle East expert at the Heritage Foundation in Washington. 鈥淚n any case it鈥檚 hard to imagine that the secretary of state really thinks Assad is about to accept negotiating himself out of a job.鈥

Mr. Phillips, who faults the Obama administration for what he calls 鈥渁 shambles of a Syria policy,鈥 says he fears that Kerry, wanting to do something to address a horrendous and deteriorating crisis on his watch, was 鈥渉oodwinked鈥 by Russia into thinking that Assad鈥檚 major international supporters were ready to abandon Assad in favor of a political transition.

鈥淜erry may have been sold a bill of goods by the Russians that they and perhaps the Iranians were ready to think about easing Assad out,鈥 Phillips says. 鈥淏ut if he does believe that, it鈥檚 pretty clear he is mistaken.鈥

At the close of Wednesday鈥檚 conference, Kerry told reporters that the gathering of representatives of more than 40 countries and international organizations was unanimous 鈥 with the exception of the Syrian government 鈥 鈥渁bout [a transition government] and 鈥 the Geneva I communiqu茅鈥 of June 2012 that calls for a transition government 鈥渨ith full executive authority by mutual consent.鈥

鈥淚t is significant,鈥 Kerry said, 鈥渢hat all of the other countries but that one [the Assad regime] came here to endorse the Geneva I communiqu茅,鈥 Kerry said.

Russia, however, had a different take on the conference, with Foreign Minister Sergei Lavrov declaring after Kerry鈥檚 opening call for Assad鈥檚 departure that it was incumbent on the international community to 鈥渞efrain from any attempt to predetermine the outcome of the process.鈥

Not surprisingly, Syria鈥檚 foreign minister, Walid al-Moallem, was even more direct in his dismissal of the US position. 鈥淣o one, Mr. Kerry, in the world has the right to give legitimacy or to withdraw legitimacy from a president, a government, a constitution or a law or anything in Syria, except Syrians,鈥 Mr. Moallem said.

Warning that a focus on leadership change in Damascus risked scuttling the peace talks, Mr. Lavrov called for emphasizing small steps first and announced that he had convinced Moallem and Syrian opposition leader Ahmed Jarba to begin direct talks Friday on issues like prisoner exchanges, humanitarian assistance, and possibly a cease-fire in Aleppo.

鈥淭he main thing is to start the process,鈥 Lavrov said. The initial talks between the two Syrian sides will last about a week, he said.

Russia鈥檚 commitment to what is called the 鈥淕eneva II鈥 process is interpreted by regional analysts as evidence that Russia, while intent on reestablishing Syria鈥檚 stability, is not necessarily committed to Assad鈥檚 long-term survival in power.

Yezid Sayigh, a senior associate at the Carnegie Middle East Center in Beirut, says in a recent post on the Carnegie Endowment for International Peace website that neither Russia nor Iran 鈥渘ecessarily prefers an outcome that leaves 鈥 Assad in office or embodies a complete and unambiguous regime victory.鈥

And, Mr. Sayigh adds, the Assad regime is beginning to act in ways that suggest it is concerned about flagging Russian support. 鈥淭he alacrity with which [Foreign Minister Moallem] accepted Russian advice to make a strong public relations gesture with the offer of a prisoner exchange and a ceasefire in Aleppo,鈥 he writes, 鈥渕ay reveal Assad鈥檚 anxiety about the Russian commitment to his remaining in power.鈥澛

But others, including Heritage鈥檚 Phillips, say the 鈥渟mall steps鈥 that Geneva II may lead to won鈥檛 change the course of the nearly three-year-old conflict 鈥 and that no substantial change will occur until Assad feels much more threatened.

鈥淭here really is no chance for a diplomatic breakthrough until the Assad regime is feeling much more heat than it is now or than what is likely to result from this week鈥檚 talks,鈥 Phillips says. 鈥淎ssad is not under nearly enough pressure to reach any kind of diplomatic settlement, even if the administration seems to think so.鈥

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