ncrease
the possibilities for success.

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.

Militias and National Reconciliation

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.