THE IRAQ GAMBIT
The next venture in the U.S. war on terror was the assault on Iraq in 2003. It is easy to argue today that the invasion was an unqualified mistake, but it is important to recall the context in which the decision to invade was made. In February 2002, the Saudis ordered American forces off their soil. The Pakistanis, in spite of heavy pressure from both India and the United States, made only modest gestures of commitment in support of the American effort. The general perception was that the United States had done what it was going to do in Afghanistan and was now hoping that other nations would carry the burden for it, both in intelligence and in operations.
Without the full cooperation of the Saudis and Pakistanis, the United States had limited options. It could conduct an intelligence war against al Qaeda, as the Israelis had done with Black September in Europe in the 1970s; but without contributing partners in the region, the U.S. intelligence capability against al Qaeda was extremely constrained.
A second option was for the United States to move into a purely defensive mode, relying on Homeland Security while hoping that the Afghan operation had disrupted al Qaeda’s command structure enough to prevent new attacks. Theoretically, the FBI could round up sleeper cells while the borders were protected from infiltration and airports secured against terrorists. Attractive on paper, this plan was impossible in practice. The FBI could never guarantee that there were no more sleeper cells in the country, and points of entry into the United States could never be completely secured. Any illusion of safety this effort gave the American public, and any support it might buy the president for a job well done, would last only until the next terrorist attack, the timing and nature of which were completely unknown. When such an attack came, the question of America’s willingness to assert itself and take risks in the Muslim world would surface again, with no clear answer. After Afghanistan, what?
The Bush administration tried to craft a strategy that forced the Saudis and Pakistanis to be more aggressive in intelligence gathering and sharing and that placed the United States in a dominant position in the Middle East, from which it could project power.
These were the underlying reasons for the invasion of Iraq. The military action had the immediate result of creating a new strategic reality. It intimidated Saudi Arabia in particular, placing U.S. armor a few days’ drive from Saudi oil fields. It also gave the United States control of the most strategic country in the region, Iraq, which borders on Kuwait, Saudi Arabia, Jordan, Syria, Turkey, and Iran. So controlling Iraq achieved the short-term goals of the war on terror, but it violated the principle that the United States does not become a permanent player in any region. The Bush administration had wagered that it could sacrifice this part of U.S. strategy—maintaining regional balances of power through surrogates while holding U.S. forces in reserve—in return for other benefits. It was a bad choice on a menu of worse choices, a point that has to be remembered when we consider the nature of imperial power: it may feel compelled to act even when all options are flawed.
Obtaining those benefits, however, required the United States to succeed not just in invading but in pacifying Iraq. The invasion succeeded, without a doubt, and the Saudis markedly increased their cooperation on intelligence. But dominating the most strategic country in the region turned out to be impossible. U.S. forces, having rolled into Baghdad with ease, found themselves quickly tied down in an insurgency that required them to focus all their force inward, when the intent had been to use Iraq as a base from which to project force outward.
This failure of the occupation transformed the war. Iraq became an end in itself, and the ultimate goal became not the creation of a new strategic reality in the region but simply the withdrawal of U.S. forces within a reasonable time frame. The best hope was to leave behind a neutral government; at worst, the end result of the invasion would be chaos.
Iraq became decoupled from America’s broader strategy and became a case study in the relationship among morality, strategy, and leadership. From a purely moral point of view, eliminating the Saddam Hussein regime could hardly have been faulted. He was a monster and his regime was monstrous. But that was not the moral imperative to which Bush had committed his presidency. His stated moral imperative was to wage a war on terror, and the occupation of Iraq made sense to the American people only to the extent that it served that goal.
In deciding to invade in 2003, George W. Bush placed his moral obsession above the fundamental principle of American strategy: maintaining a balance in each region without committing substantial numbers of troops. There are many regions, and if the United States began deploying occupation forces in each of these, the burden would quickly outstrip American capacity. Moreover, U.S. forces had supplanted Iraq’s own forces as the counterweight to Iran, now the largest indigenous power in the region. If at some point the United States simply withdrew from Iraq, Iran would by default dominate the entire Persian Gulf. Whatever the invasion contributed to the war against al Qaeda, the strategic costs of Iraq became too high.
For the invasion of Iraq to be aligned with America’s long-standing strategic principles, U.S. forces would have had to occupy Iraq quickly and efficiently and without significant resistance. Then the United States would have had to rapidly construct a viable regime in Baghdad, complete with a substantial military force, to take over the role of balancing its historical enemy, Iran. If this could have been done in, say, five years, Bush would have achieved both his moral and strategic goals. He would have delivered the necessary shock to the Muslim world, intimidated the Saudis, and been able to use Iraq’s strategic location to pressure countries in the region. The United States could have then withdrawn, leaving regional players to balance each other once more.
The Bush strategy failed because the premise was faulty: there was resistance that could not be readily suppressed. The greatest intelligence mistake of the war did not concern weapons of mass destruction but rather the failure to understand that insurgency had long been Saddam Hussein’s default plan for dealing with an invasion. It also involved a failure to understand that by trying to destroy Saddam’s Sunni-dominated Baathist Party, the United States effectively drove the Sunnis out of government and turned power over to their religious and cultural rivals, the Shiites. Terrified of a Shiite government (which, incidentally, would have some affinity with the Shiite majority that dominated Iran), the Sunnis in Iraq were put in a position where they had nothing to lose and embraced random shootings and roadside bombs.
But Bush’s miscalculation ran deeper. He counted on the support of the Shiites in opposing the Sunni establishment, but discounted the degree to which the Iraqi Shiites were intertwined with the heavily Shiite Iranians. The Iranians had no interest in seeing Iraq resurrected under a pro-American government that would once again threaten Iran, so the United States wound up trapped from two directions. The Sunnis went to war against the occupation, and the Shiites, influenced by Iran, did everything they could to avoid the kind of cooperation that would turn them into an American dependency.
Bush violated strategic principles, hoping to return to the main path later, but he got trapped in the local realities, which he could not manage. As the situation deteriorated, his credibility with the American public declined. He could have survived the fact that his initial justification for the war, the existence of weapons of mass destruction, proved untrue. But he could not survive being trapped in a multisided war with no end in sight.
There were other errors that undermined this president’s ability to lead. His second justification for the invasion was the need to create a democratic Iraq. This did not resonate with the American public, which saw no pressing reason for such an effort. This nation-building motivation was in fact a lie. As we noted in the case of Lincoln, Roosevelt, and Reagan, great presidents often have to lie to serve their greater moral purpose. But Bush failed to convince because his clearly stated moral imperative—defeating terrorism—had diverged from strategic reality to such an extent that his entire foreign policy appeared convoluted and chaotic, which made him appear incompetent. There were too many separate explanations, too many cases of special pleading. The failure to align moral objectives with strategic goals, and both with a coherent myth for popular consumption, crushed him.
In 2007, too late to save his presidency, Bush instituted the surge. This effort had less to do with military strategy than it did with using military force to set the stage for a negotiated settlement with the Sunnis. Once that was put in place, the Shiites, afraid of an American-backed Sunni force, became somewhat more cooperative, and the violence died down.
With Iraq no longer an effective counterweight, the balance of power with Iran broke down completely. An American withdrawal of forces would leave Iran the dominant force in the region, with no local power to block it—a prospect that completely unnerved the Arabian powers, as well as Israel and the United States. It is this imbalance that sets the stage for the regional problems that will continue to face the American president in the decade to come.
THE IRANIAN COMPLEXITY
As the second decade of the twenty-first century began, the dual problem facing the United States in this region was withdrawing its forces without leaving Iran unchecked by a countervailing power. Given that there were no other candidates for the job of blocking Iranian ambitions, it appeared that the United States could not withdraw from Iraq until it had created a government in Baghdad strong enough to restore balance.
The Iranians had clearly welcomed the invasion of Iraq. Long before September 11, they had done everything possible to induce the United States to step in and eliminate Saddam Hussein. Indeed, much of the intelligence forecasting that American troops would not encounter resistance had come from Iranian sources.
Once American boots were on the ground, Iran began to threaten U.S. interests in Iraq directly by becoming deeply involved with various Shiite factions, then by supplying weapons to the Sunnis to keep the conflict going. Iran had also supported Taliban forces in western Afghanistan, as well as Hezbollah in Lebanon.
The Iranians had expected the United States to create an Iraqi government that marginalized the Sunnis and emerged as primarily Shiite. They anticipated that once the United States withdrew, such a government would become an Iranian satellite. They expected the Americans to lean on Iran’s Shiite allies to govern Iraq, but the United States threw them a curve by attempting to govern Iraq directly through various institutions and individuals. Nonetheless, given the protracted difficulty of forming a government and the eventual withdrawal of the Americans, the outcome is likely still to leave Iran in a favorable position.
But these factors are exactly what has proved so dangerous to the government in Tehran. Trapped between trying to govern a rebellious country directly and turning over responsibility to a government penetrated by Iranian agents and sympathizers and then withdrawing, the United States had to consider a more radical possibility: an attack that would overthrow Iranian president Mahmoud Ahmadinejad and the regime that his presidency was based on.
With its 70 million people inside mountainous borders, Iran is by virtue of topography an effective fortress. Given that the terrain makes a direct invasion impossible, the Americans have tried multiple times to generate a revolution similar to the ones that toppled governments in the former Soviet Union. Over the years, these attempts have always failed. But after the failures in Iraq, and to the extent that the United States could neither revive the balance of power nor leave Iran the dominant power in the Persian Gulf region, it would be natural enough for the Americans to consider some kind of attack to oust the Iranian government. The fact that this regime is split between old clerics who came to power with Ayatollah Khomeini and younger, nonclerical leaders such as Ahmadinejad adds to Iranian worries. But the leaders’ primary concern is that they have seen other U.S.-sponsored uprisings succeed, particularly in the former Soviet Union, and they cannot take the chance that the United States won’t get lucky again.
The Iranians noted the manner in which North Korea had managed a similar problem in the 1990s, when its government feared that the collapse of Soviet communism would lead to its own collapse. Trying to portray themselves as more dangerous and psychologically unstable than they were, the Koreans launched a nuclear weapons program. To convince people that they might actually use those weapons, they made statements that appeared quite mad. As a result, everyone feared a regime collapse that might lead to unpredictable results. Thus the North Koreans managed to create a situation in which powers such as the United States, China, Russia, Japan, and South Korea tried to coax them to the table with aid. The North Koreans were so successful that they had the great powers negotiating to entice them to negotiate. It was an extraordinary performance.
Playing to America’s nuclear phobia, the Iranians have been working on nuclear technology for a decade, a program that has included crafting themselves in the image of North Korea, as unpredictable and dangerous. Like the North Koreans, they managed to maneuver themselves into a position where the permanent members of the UN Security Council, plus Germany, were trying to negotiate with them over the issue of whether or not they would negotiate.
The collapse of Iraq had left the United States in an extremely difficult situation with limited options. An air strike against Iranian nuclear targets would most likely spur a patriotic resurgence that would only strengthen the regime. And Iran had substantial counters, including the ability to further destabilize Iraq and to some extent Afghanistan. Iran could also unleash Hezbollah, a far more capable terrorist organization than al Qaeda. Or it could mine the Strait of Hormuz, creating economic chaos by blocking the flow of oil from the Persian Gulf.