Let’s face it: in times of war, the Constitution tends to take a beating. With the safety or survival of the nation said to be at risk, the basic law of the land — otherwise considered sacrosanct — becomes nonbinding, subject to being waived at the whim of government authorities who are impatient, scared, panicky, or just plain pissed off.
The examples are legion. During the Civil War, Abraham Lincoln arbitrarily suspended the writ of habeas corpus and ignored court orders that took issue with his authority to do so. After U.S. entry into World War I, the administration of Woodrow Wilson mounted a comprehensive effort to crush dissent, shutting down anti-war publications in complete disregard of the First Amendment. Amid the hysteria triggered by Pearl Harbor, Franklin Roosevelt issued an executive order consigning to concentration camps more than 100,000 Japanese-Americans, many of them native-born citizens. Asked in 1944 to review this gross violation of due process, the Supreme Court endorsed the government’s action by a 6-3 vote.
More often than not, the passing of the emergency induces second thoughts and even remorse. The further into the past a particular war recedes, the more dubious the wartime arguments for violating the Constitution appear. Americans thereby take comfort in the “lessons learned” that will presumably prohibit any future recurrence of such folly.
Even so, the onset of the next war finds the Constitution once more being ill-treated. We don’t repeat past transgressions, of course. Instead, we devise new ones. So it has been during the ongoing post-9/11 period of protracted war.
During the presidency of George W. Bush, the United States embraced torture as an instrument of policy in clear violation of the Eighth Amendment prohibiting cruel and unusual punishment. Bush’s successor, Barack Obama, ordered the extrajudicial killing of an American citizen, a death by drone that was visibly in disregard of the Fifth and Fourteenth Amendments. Both administrations — Bush’s with gusto, Obama’s with evident regret — imprisoned individuals for years on end without charge and without anything remotely approximating the “speedy and public trial, by an impartial jury” guaranteed by the Sixth Amendment. Should the present state of hostilities ever end, we can no doubt expect Guantánamo to become yet another source of “lessons learned” for future generations of rueful Americans.
Congress on the Sidelines
Yet one particular check-and-balance constitutional proviso now appears exempt from this recurring phenomenon of disregard followed by professions of dismay, embarrassment, and “never again-ism” once the military emergency passes. I mean, of course, Article I, section 8 of the Constitution, which assigns to Congress the authority “to declare war” and still stands as testimony to the genius of those who drafted it. There can be no question that the responsibility for deciding when and whether the United States should fight resides with the legislative branch, not the executive, and that this was manifestly the intent of the Framers.
On parchment at least, the division of labor appears straightforward. The president’s designation as commander-in-chief of the armed forces in no way implies a blanket authorization to employ those forces however he sees fit or anything faintly like it. Quite the contrary: legitimizing presidential command requires explicit congressional sanction.
Actual practice has evolved into something altogether different. The portion of Article I, Section 8, cited above has become a dead letter, about as operative as blue laws still on the books in some American cities and towns that purport to regulate Sabbath day activities. Superseding the written text is an unwritten counterpart that goes something like this: with legislators largely consigned to the status of observers, presidents pretty much wage war whenever, wherever, and however they see fit. Whether the result qualifies as usurpation or forfeiture is one of those chicken-and-egg questions that’s interesting but practically speaking beside the point.
This is by no means a recent development. It has a history. In the summer of 1950, when President Harry Truman decided that a U.N. Security Council resolution provided sufficient warrant for him to order U.S. forces to fight in Korea, congressional war powers took a hit from which they would never recover.
Congress soon thereafter bought into the notion, fashionable during the Cold War, that formal declarations of hostilities had become passé. Waging the “long twilight struggle” ostensibly required deference to the commander-in-chief on all matters related to national security. To sustain the pretense that it still retained some relevance, Congress took to issuing what were essentially permission slips, granting presidents maximum freedom of action to do whatever they might decide needed to be done in response to the latest perceived crisis.
The Tonkin Gulf Resolution of 1964 offers a notable example. With near unanimity, legislators urged President Lyndon Johnson “to take all necessary measures to repel any armed attack against the forces of the United States and to prevent further aggression” across the length and breadth of Southeast Asia. Through the magic of presidential interpretation, a mandate to prevent aggression provided legal cover for an astonishingly brutal and aggressive war in Vietnam, as well as Cambodia and Laos. Under the guise of repelling attacks on U.S. forces, Johnson and his successor, Richard Nixon, thrust millions of American troops into a war they could not win, even if more than 58,000 died trying.
To leap almost four decades ahead, think of the Authorization to Use Military Force (AUMF) that was passed by Congress in the immediate aftermath of 9/11 as the grandchild of the Tonkin Gulf Resolution. This document required (directed, called upon, requested, invited, urged) President George W. Bush “to use all necessary and appropriate force against those nations, organizations, or persons he determines planned, authorized, committed, or aided the terrorist attacks that occurred on September 11, 2001, or harbored such organizations or persons, in order to prevent any future acts of international terrorism against the United States by such nations, organizations, or persons.” In plain language: here’s a blank check; feel free to fill it in any way you like.
As a practical matter, one specific individual — Osama bin Laden — had hatched the 9/11 plot. A single organization — al-Qaeda — had conspired to pull it off. And just one nation — backward, Taliban-controlled Afghanistan — had provided assistance, offering sanctuary to bin Laden and his henchmen. Yet nearly 15 years later, the AUMF remains operative and has become the basis for military actions against innumerable individuals, organizations, and nations with no involvement whatsoever in the murderous events of September 11, 2001.
Consider the following less than comprehensive list of four developments, all of which occurred just within the last month and a half:
*In Yemen, a U.S. airstrike killed at least 50 individuals, said to be members of an Islamist organization that did not exist on 9/11.
*In Somalia, another U.S. airstrike killed a reported 150 militants, reputedly members of al-Shabab, a very nasty outfit, even if one with no real agenda beyond Somalia itself.
*In Syria, pursuant to the campaign of assassination that is the latest spin-off of the Iraq War, U.S. special operations forces bumped off the reputed “finance minister” of the Islamic State, another terror group that didn’t even exist in September 2001.
*In Libya, according to press reports, the Pentagon is again gearing up for “decisive military action” — that is, a new round of air strikes and special operations attacks to quell the disorder resulting from the U.S.-orchestrated air campaign that in 2011 destabilized that country. An airstrike conducted in late February gave a hint of what is to come: it killed approximately 50 Islamic State militants (and possibly two Serbian diplomatic captives).
Yemen, Somalia, Syria, and Libya share at least this in common: none of them, nor any of the groups targeted, had a hand in the 9/11 attacks.
Imagine if, within a matter of weeks, China were to launch raids into Vietnam, Thailand, and Taiwan, with punitive action against the Philippines in the offing. Or if Russia, having given a swift kick to Ukraine, Georgia, and Azerbaijan, leaked its plans to teach Poland a lesson for mismanaging its internal affairs. Were Chinese President Xi Jinping or Russian President Vladimir Putin to order such actions, the halls of Congress would ring with fierce denunciations. Members of both houses would jostle for places in front of the TV cameras to condemn the perpetrators for recklessly violating international law and undermining the prospects for world peace. Having no jurisdiction over the actions of other sovereign states, senators and representatives would break down the doors to seize the opportunity to get in their two cents worth. No one would be able to stop them. Who does Xi think he is! How dare Putin!
Yet when an American president undertakes analogous actions over which the legislative branch does have jurisdiction, members of Congress either yawn or avert their eyes.
In this regard, Republicans are especially egregious offenders. On matters where President Obama is clearly acting in accordance with the Constitution — for example, in nominating someone to fill a vacancy on the Supreme Court — they spare no effort to thwart him, concocting bizarre arguments nowhere found in the Constitution to justify their obstructionism. Yet when this same president cites the 2001 AUMF as the basis for initiating hostilities hither and yon, something that is on the face of it not legal but ludicrous, they passively assent.
Indeed, when Obama in 2015 went so far as to ask Congress to pass a new AUMF addressing the specific threat posed by the Islamic State — that is, essentially rubberstamping the war he had already launched on his own in Syria and Iraq — the Republican leadership took no action. Looking forward to the day when Obama departs office, Senator Mitch McConnell with his trademark hypocrisy worried aloud that a new AUMF might constrain his successor. The next president will “have to clean up this mess, created by all of this passivity over the last eight years,” the majority leader remarked. In that regard, “an authorization to use military force that ties the president’s hands behind his back is not something I would want to do.” The proper role of Congress was to get out of the way and give this commander-in-chief carte blanche so that the next one would enjoy comparably unlimited prerogatives.
Collaborating with a president they roundly despise — implicitly concurring in Obama’s questionable claim that “existing statutes [already] provide me with the authority I need” to make war on ISIS — the GOP-controlled Congress thereby transformed the post-9/11 AUMF into what has now become, in effect, a writ of permanent and limitless armed conflict. In Iraq and Syria, for instance, what began as a limited but open-ended campaign of air strikes authorized by President Obama in August 2014 has expanded to include an ever-larger contingent of U.S. trainers and advisers for the Iraqi military, special operations forces conducting raids in both Iraq and Syria, the first new all-U.S. forward fire base in Iraq, and at least 5,000 U.S. military personnel now on the ground, a number that continues to grow incrementally.
Remember Barack Obama campaigning back in 2008 and solemnly pledging to end the Iraq War? What he neglected to mention at the time was that he was retaining the prerogative to plunge the country into another Iraq War on his own ticket. So has he now done, with members of Congress passively assenting and the country essentially a prisoner of war.
By now, through its inaction, the legislative branch has, in fact, surrendered the final remnant of authority it retained on matters relating to whether, when, against whom, and for what purpose the United States should go to war. Nothing now remains but to pay the bills, which Congress routinely does, citing a solemn obligation to “support the troops.” In this way does the performance of lesser duties provide an excuse for shirking far greater ones.
In military circles, there is a term to describe this type of behavior. It’s called cowardice.
Copyright 2016 Andrew J. Bacevich
Writing a Blank Check on War for the President
Whether or not Donald Trump ultimately succeeds in winning the White House, historians are likely to rank him as the most consequential presidential candidate of at least the past half-century. He has already transformed the tone and temper of American political life. If he becomes the Republican nominee, he will demolish its structural underpinnings as well. Should he prevail in November, his election will alter its very fabric in ways likely to prove irreversible. Whether Trump ever delivers on his promise to “Make America Great Again,” he is already transforming American democratic practice.
Trump takes obvious delight in thumbing his nose at the political establishment and flouting its norms. Yet to classify him as an anti-establishment figure is to miss his true significance. He is to American politics what Martin Shkreli is to Big Pharma. Each represents in exaggerated form the distilled essence of a much larger and more disturbing reality. Each embodies the smirking cynicism that has become one of the defining characteristics of our age. Each in his own way is a sign of the times.
In contrast to the universally reviled Shkreli, however, Trump has cultivated a mass following that appears impervious to his missteps, miscues, and misstatements. What Trump actually believes — whether he believes in anything apart from big, splashy self-display — is largely unknown and probably beside the point. Trumpism is not a program or an ideology. It is an attitude or pose that feeds off of, and then reinforces, widespread anger and alienation.
The pose works because the anger — always present in certain quarters of the American electorate but especially acute today — is genuine. By acting the part of impish bad boy and consciously trampling on the canons of political correctness, Trump validates that anger. The more outrageous his behavior, the more secure his position at the very center of the political circus. Wondering what he will do next, we can’t take our eyes off him. And to quote Marco Rubio in a different context, Trump “knows exactly what he is doing.”
Targeting Obama’s Presidency
There is a form of genius at work here. To an extent unmatched by any other figure in American public life, Trump understands that previous distinctions between the ostensibly serious and the self-evidently frivolous have collapsed. Back in 1968, then running for president, Richard Nixon, of all people, got things rolling when he appeared on Laugh-In and uttered the immortal words, “Sock it to me?” But no one has come close to Trump in grasping the implications of all this: in contemporary America, celebrity confers authority. Mere credentials or qualifications have become an afterthought. How else to explain the host of a “reality” TV show instantly qualifying as a serious contender for high office?
For further evidence of Trump’s genius, consider the skill with which he plays the media, especially celebrity journalists who themselves specialize in smirking cynicism. Rather than pretending to take them seriously, he unmasks their preening narcissism, which mirrors his own. He refuses to acknowledge their self-assigned role as gatekeepers empowered to police the boundaries of permissible discourse. As the embodiment of “breaking news,” he continues to stretch those boundaries beyond recognition.
In that regard, the spectacle of televised “debates” has offered Trump an ideal platform for promoting his cult of personality. Once a solemn, almost soporific forum for civic education — remember Kennedy and Nixon in 1960? — presidential debates now provide occasions for trading insults, provoking gaffes, engaging in verbal food fights, and marketing magical solutions to problems ranging from war to border security that are immune to magic. For all of that we have Trump chiefly to thank.
Trump’s success as a campaigner schools his opponents, of course. In a shrinking Republican field, survival requires mimicking his antics. In that regard, Ted Cruz rates as Trump’s star pupil. Cruz is to Trump what Lady Gaga was to Amy Winehouse — a less freewheeling, more scripted, and arguably more calculating version of the original.
Yet if not a clone, Cruz taps into the same vein of pissed-off, give-me-my-country-back rage that Trump himself has so adeptly exploited. Like the master himself, Cruz has demonstrated a notable aptitude for expressing disagreement through denigration and for extravagant,crackpot promises. For his part, Marco Rubio, the only other Republican still seriously in the running, lags not far behind. When it comes to swagger and grandiosity, nothing beats a vow to create a “New American Century,” thereby resurrecting a mythic past when all was ostensibly right with the world.
On two points alone do these several Republicans see eye-to-eye. The first relates to domestic policy, the second to America’s role in the world.
On point one: with absolute unanimity, Trump, Cruz, and Rubio ascribe to Barack Obama any and all problems besetting the nation. To take their critique at face value, the country was doing swimmingly well back in 2009 when Obama took office. Today, it’s FUBAR, due entirely to Obama’s malign actions.
Wielding comparable authority, however, a Republican president can, they claim, dismantle Obama’s poisonous legacy and restore all that he has destroyed. From “day one,” on issues ranging from health care to immigration to the environment, the Republican candidates vow to do exactly this. With the stroke of a pen and the wave of a hand, it will be a breeze.
On point two: ditto. Aided and abetted by Hillary Clinton, Obama has made a complete hash of things abroad. Here the list of Republican grievances is especially long. Thanks to Obama, Russia threatens Europe; North Korea is misbehaving; China is flexing its military muscles; ISIS is on the march; Iran has a clear path to acquiring nuclear weapons; and perhaps most distressingly of all, Benjamin Netanyahu, the prime minister of Israel, is unhappy with U.S. policy.
Here, too, the Republican candidates see eye-to-eye and have solutions readily at hand. In one way or another, all of those solutions relate to military power. Trump, Cruz, and Rubio are unabashed militarists. (So, too, is Hillary Clinton, but that’s an issue deserving an essay of its own). Their gripe with Obama is that he never put American military might fully to work, a defect they vow to amend. A Republican commander-in-chief, be it Trump, Cruz, or Rubio, won’t take any guff from Moscow or Pyongyang or Beijing or Tehran. He will eradicate “radical Islamic terrorism,” put the mullahs back in their box, torture a bunch of terrorists in the bargain, and give Bibi whatever he wants.
In addition to offering Obama a sort of backhanded tribute — so much damage wrought by just one man in so little time — the Republican critique reinforces reigning theories of presidential omnipotence. Just as an incompetent or ill-motivated chief executive can screw everything up, so, too, can a bold and skillful one set things right.
Juan and Evita in Washington?
The ratio between promises made and promises fulfilled by every president in recent memory — Obama included — should have demolished such theories long ago. But no such luck. Fantasies of a great president saving the day still persist, something that Trump, Cruz, and Rubio have all made the centerpiece of their campaigns. Elect me, each asserts. I alone can save the Republic.
Here, however, Trump may enjoy an edge over his competitors, including Hillary Clinton and Bernie Sanders. With Americans assigning to their presidents the attributes of demigods — each and every onememorialized before death with a library-shrine — who better to fill the role than an egomaniacal tycoon who already acts the part? The times call for strong leadership. Who better to provide it than a wheeler-dealer unbothered by the rules that constrain mere mortals?
What then lies ahead?
If Trump secures the Republican nomination, now an increasingly imaginable prospect, the party is likely to implode. Whatever rump organization survives will have forfeited any remaining claim to represent principled conservatism.
None of this will matter to Trump, however. He is no conservative and Trumpism requires no party. Even if some new institutional alternative to conventional liberalism eventually emerges, the two-party system that has long defined the landscape of American politics will be gone for good.
Should Trump or a Trump mini-me ultimately succeed in capturing the presidency, a possibility that can no longer be dismissed out of hand, the effects will be even more profound. In all but name, the United States will cease to be a constitutional republic. Once President Trump inevitably declares that he alone expresses the popular will, Americans will find that they have traded the rule of law for a version ofcaudillismo. Trump’s Washington could come to resemble Buenos Aires in the days of Juan Perón, with Melania a suitably glamorous stand-in for Evita, and plebiscites suitably glamorous stand-ins for elections.
That a considerable number of Americans appear to welcome this prospect may seem inexplicable. Yet reason enough exists for their disenchantment. American democracy has been decaying for decades. The people know that they are no longer truly sovereign. They know that the apparatus of power, both public and private, does not promote the common good, itself a concept that has become obsolete. They have had their fill of irresponsibility, lack of accountability, incompetence, and the bad times that increasingly seem to go with them.
So in disturbingly large numbers they have turned to Trump to strip bare the body politic, willing to take a chance that he will come up with something that, if not better, will at least be more entertaining. As Argentines and others who have trusted their fate to demagogues have discovered, such expectations are doomed to disappointment.
In the meantime, just imagine how the Donald J. Trump Presidential Library, no doubt taller than all the others put together, might one day glitter and glisten — perhaps with casino attached.
Andrew J. Bacevich, a TomDispatch regular, is professor emeritus of history and international relations at Boston University. He is the author of the new book America’s War for the Greater Middle East: A Military History (Random House, April 2016).
Copyright 2016 Andrew Bacevich
Don’t Cry for Me, America
To judge by the early returns, the presidential race of 2016 is shaping up as the most disheartening in recent memory. Other than as a form of low entertainment, the speeches, debates, campaign events, and slick TV ads already inundating the public sphere offer little of value. Rather than exhibiting the vitality of American democracy, they testify to its hollowness.
Present-day Iranian politics may actually possess considerably more substance than our own. There, the parties involved, whether favoring change or opposing it, understand that the issues at stake have momentous implications. Here, what passes for national politics is a form of exhibitionism about as genuine as pro wrestling.
A presidential election campaign ought to involve more than competing coalitions of interest groups or bevies of investment banks and billionaires vying to install their preferred candidate in the White House. It should engage and educate citizens, illuminating issues and subjecting alternative solutions to careful scrutiny.
That this one won’t even come close we can ascribe as much to the media as to those running for office, something the recent set of “debates” and the accompanying commentary have made painfully clear. With certain honorable exceptions such as NBC’s estimable Lester Holt, representatives of the press are less interested in fulfilling their civic duty than promoting themselves as active participants in the spectacle. They bait, tease, and strut. Then they subject the candidates’ statements and misstatements to minute deconstruction. The effect is to inflate their own importance while trivializing the proceedings they are purportedly covering.
Above all in the realm of national security, election 2016 promises to be not just a missed opportunity but a complete bust. Recent efforts to exercise what people in Washington like to call “global leadership” have met with many more failures and disappointments than clearcut successes. So you might imagine that reviewing the scorecard would give the current raft of candidates, Republican and Democratic alike, plenty to talk about.
But if you thought that, you’d be mistaken. Instead of considered discussion of first-order security concerns, the candidates have regularly opted for bluff and bluster, their chief aim being to remove all doubts regarding their hawkish bona fides.
In that regard, nothing tops rhetorically beating up on the so-called Islamic State. So, for example, Hillary Clinton promises to “smash the would-be caliphate,” Jeb Bush to “defeat ISIS for good,” Ted Cruz to “carpet bomb them into oblivion,” and Donald Trump to “bomb the shit out of them.” For his part, having recently acquired a gun as the “last line of defense between ISIS and my family,” Marco Rubio insists that when he becomes president, “The most powerful intelligence agency in the world is going to tell us where [ISIS militants] are; the most powerful military in the world is going to destroy them; and if we capture any of them alive, they are getting a one-way ticket to Guantanamo Bay.”
These carefully scripted lines perform their intended twofold function. First, they elicit applause and certify the candidate as plenty tough. Second, they spare the candidate from having to address matters far more deserving of presidential attention than managing the fight against the Islamic State.
In the hierarchy of challenges facing the United States today, ISIS ranks about on a par with Sicily back in 1943. While liberating that island was a necessary prelude to liberating Europe more generally, the German occupation of Sicily did not pose a direct threat to the Allied cause. So with far weightier matters to attend to — handling Soviet dictator Joseph Stalin and British Prime Minister Winston Churchill, for example — President Franklin Roosevelt wisely left the problem of Sicily to subordinates. FDR thereby demonstrated an aptitude for distinguishing between the genuinely essential and the merely important.
By comparison, today’s crop of presidential candidates either are unable to grasp, cannot articulate, or choose to ignore those matters that should rightfully fall under a commander-in-chief’s purview. Instead, they compete with one another in vowing to liberate the twenty-first-century equivalent of Sicily, as if doing so demonstrates their qualifications for the office.
What sort of national security concerns should be front and center in the current election cycle? While conceding that a reasoned discussion of heavily politicized matters like climate change, immigration, or anything to do with Israel is probably impossible, other issues of demonstrable significance deserve attention. What follows are six of them — by no means an exhaustive list — that I’ve framed as questions a debate moderator might ask of anyone seeking the presidency, along with brief commentaries explaining why neither the posing nor the answering of such questions is likely to happen anytime soon.
1. The War on Terror: Nearly 15 years after this “war” was launched by George W. Bush, why hasn’t “the most powerful military in the world,” “the finest fighting force in the history of the world” won it? Why isn’t victory anywhere in sight?
As if by informal agreement, the candidates and the journalists covering the race have chosen to ignore the military enterprise inaugurated in 2001, initially called the Global War on Terrorism and continuing today without an agreed-upon name. Since 9/11, the United States has invaded, occupied, bombed, raided, or otherwise established a military presence in numerous countries across much of the Islamic world. How are we doing?
Given the resources expended and the lives lost or ruined, not particularly well it would seem. Intending to promote stability, reduce the incidence of jihadism, and reverse the tide of anti-Americanism among many Muslims, that “war” has done just the opposite. Advance the cause of democracy and human rights? Make that zero-for-four.
Amazingly, this disappointing record has been almost entirely overlooked in the campaign. The reasons why are not difficult to discern. First and foremost, both parties share in the serial failures of U.S. policy in Afghanistan, Iraq, Syria, Libya, and elsewhere in the region. Pinning the entire mess on George W. Bush is no more persuasive than pinning it all on Barack Obama. An intellectually honest accounting would require explanations that look beyond reflexive partisanship. Among the matters deserving critical scrutiny is Washington’s persistent bipartisan belief in military might as an all-purpose problem solver. Not far behind should come questions about simple military competence that no American political figure of note or mainstream media outlet has the gumption to address.
The politically expedient position indulged by the media is to sidestep such concerns in favor of offering endless testimonials to the bravery and virtue of the troops, while calling for yet more of the same or even further escalation. Making a show of supporting the troops takes precedence over serious consideration of what they are continually being asked to do.
2. Nuclear Weapons: Today, more than 70 years after Hiroshima and Nagasaki, what purpose do nukes serve? How many nuclear weapons and delivery systems does the United States actually need?
In an initiative that has attracted remarkably little public attention, the Obama administration has announced plans to modernize and upgrade the U.S. nuclear arsenal. Estimated costs of this program reach as high as $1 trillion over the next three decades. Once finished — probably just in time for the 100th anniversary of Hiroshima — the United States will possess more flexible, precise, survivable, and therefore usable nuclear capabilities than anything hitherto imagined. In effect, the country will have acquired a first-strike capability — even as U.S. officials continue to affirm their earnest hope of removing the scourge of nuclear weapons from the face of the Earth (other powers being the first to disarm, of course).
Whether, in the process, the United States will become more secure or whether there might be far wiser ways to spend that kind of money — shoring up cyber defenses, for example — would seem like questions those who could soon have their finger on the nuclear button might want to consider.
Yet we all know that isn’t going to happen. Having departed from the sphere of politics or strategy, nuclear policy has long since moved into the realm of theology. Much as the Christian faith derives from a belief in a Trinity consisting of the Father, the Son, and the Holy Ghost, so nuclear theology has its own Triad, comprised of manned bombers, intercontinental ballistic missiles, and submarine-launched missiles. To question the existence of such a holy threesome constitutes rank heresy. It’s just not done — especially when there’s all that money about to be dropped into the collection plate.
3. Energy Security: Given the availability of abundant oil and natural gas reserves in the Western Hemisphere and the potential future abundance of alternative energy systems, why should the Persian Gulf continue to qualify as a vital U.S. national security interest?
Back in 1980, two factors prompted President Jimmy Carter to announce that the United States viewed the Persian Gulf as worth fighting for. The first was a growing U.S. dependence on foreign oil and a belief that American consumers were guzzling gas at a rate that would rapidly deplete domestic reserves. The second was a concern that, having just invaded Afghanistan, the Soviet Union might next have an appetite for going after those giant gas stations in the Gulf, Iran, or even Saudi Arabia.
Today we know that the Western Hemisphere contains more than ample supplies of oil and natural gas to sustain the American way of life (while also heating up the planet). As for the Soviet Union, it no longer exists — a decade spent chewing on Afghanistan having produced a fatal case of indigestion.
No doubt ensuring U.S. energy security should remain a major priority. Yet in that regard, protecting Canada, Mexico, and Venezuela is far more relevant to the nation’s well-being than protecting Saudi Arabia, Kuwait, and Iraq, while being far easier and cheaper to accomplish. So who will be the first presidential candidate to call for abrogating the Carter Doctrine? Show of hands, please?
4. Assassination: Now that the United States has normalized assassination as an instrument of policy, how well is it working? What are its benefits and costs?
George W. Bush’s administration pioneered the practice of using missile-armed drones as a method of extrajudicial killing. Barack Obama’s administration greatly expanded and routinized the practice.
The technique is clearly “effective” in the narrow sense of liquidating leaders and “lieutenants” of terror groups that policymakers want done away with. What’s less clear is whether the benefits of state-sponsored assassination outweigh the costs, which are considerable. The incidental killing of noncombatants provokes ire directed against the United States and provides terror groups with an excellent recruiting tool. The removal of Mr. Bad Actor from the field adversely affects the organization he leads for no longer than it takes for a successor to emerge. As often as not, the successor turns out to be nastier than Mr. Bad Actor himself.
It would be naïve to expect presidential candidates to interest themselves in the moral implications of assassination as now practiced on a regular basis from the White House. Still, shouldn’t they at least wonder whether it actually works as advertised? And as drone technology proliferates, shouldn’t they also contemplate the prospect of others — say, Russians, Chinese, and Iranians — following America’s lead and turning assassination into a global practice?
5. Europe: Seventy years after World War II and a quarter-century after the Cold War ended, why does European security remain an American responsibility? Given that Europeans are rich enough to defend themselves, why shouldn’t they?
Americans love Europe: old castles, excellent cuisine, and cultural attractions galore. Once upon a time, the parts of Europe that Americans love best needed protection. Devastated by World War II, Western Europe faced in the Soviet Union a threat that it could not handle alone. In a singular act of generosity laced with self-interest, Washington came to the rescue. By forming NATO, the United States committed itself to defend its impoverished and vulnerable European allies. Over time this commitment enabled France, Great Britain, West Germany, and other nearby countries to recover from the global war and become strong, prosperous, and democratic countries.
Today Europe is “whole and free,” incorporating not only most of the former Soviet empire, but even parts of the old Soviet Union itself. In place of the former Soviet threat, there is Vladimir Putin, a bully governing a rickety energy state that, media hype notwithstanding, poses no more than a modest danger to Europe itself. Collectively, the European Union’s economy, at $18 trillion, equals that of the United States and exceeds Russia’s, even in sunnier times, by a factor of nine. Its total population, easily outnumbering our own, is more than triple Russia’s. What these numbers tell us is that Europe is entirely capable of funding and organizing its own defense if it chooses to do so.
It chooses otherwise, in effect opting for something approximating disarmament. As a percentage of the gross domestic product, European nations spend a fraction of what the United States does on defense. When it comes to armaments, they prefer to be free riders and Washington indulges that choice. So even today, seven decades after World War II ended, U.S. forces continue to garrison Europe and America’s obligation to defend 26 countries on the far side of the Atlantic remains intact.
The persistence of this anomalous situation deserves election-year attention for one very important reason. It gets to the question of whether the United States can ever declare mission accomplished. Since the end of World War II, Washington has extended its security umbrella to cover not only Europe, but also virtually all of Latin America and large parts of East Asia. More recently, the Middle East, Central Asia, and now Africa have come in for increased attention. Today, U.S. forces alone maintain an active presence in 147 countries.
Do our troops ever really get to “come home”? The question is more than theoretical in nature. To answer it is to expose the real purpose of American globalism, which means, of course, that none of the candidates will touch it with a 10-foot pole.
6. Debt: Does the national debt constitute a threat to national security? If so, what are some politically plausible ways of reining it in?
Together, the administrations of George W. Bush and Barack Obama can take credit for tripling the national debt since 2000. Well before Election Day this coming November, the total debt, now exceeding the entire gross domestic product, will breach the $19 trillion mark.
In 2010, Admiral Mike Mullen, then chairman of the Joint Chiefs of Staff, described that debt as “the most significant threat to our national security.” Although in doing so he wandered a bit out of his lane, he performed a rare and useful service by drawing a link between long-term security and fiscal responsibility. Ever so briefly, a senior military officer allowed consideration of the national interest to take precedence over the care and feeding of the military-industrial complex. It didn’t last long.
Mullen’s comment garnered a bit of attention, but failed to spur any serious congressional action. Again, we can see why, since Congress functions as an unindicted co-conspirator in the workings of that lucrative collaboration. Returning to anything like a balanced budget would require legislators to make precisely the sorts of choices that they are especially loathe to make — cutting military programs that line the pockets of donors and provide jobs for constituents. (Although the F-35 fighter may be one of the most bloated and expensive weapons programs in history, even Democratic Socialist Senator Bernie Sanders has left no stone unturned in lobbying to get those planes stationed in his hometown of Burlington.)
Recently, the role of Congress in authorizing an increase in the debt ceiling has provided Republicans with an excuse for political posturing, laying responsibility for all that red ink entirely at the feet of President Obama — this despite the fact that he has reduced the annual deficit by two-thirds, from $1.3 trillion the year he took office to $439 billion last year.
This much is certain: regardless of who takes the prize in November, the United States will continue to accumulate debt at a non-trivial rate. If a Democrat occupies the White House, Republicans will pretend to care. If our next president is a Republican, they will keep mum. In either case, the approach to national security that does so much to keep the books out of balance will remain intact.
Come to think of it, averting real change might just be the one point on which the candidates generally agree.
Copyright 2016 Andrew J. Bacevich
Out of Bounds, Off-Limits, or Just Plain Ignored
Assume that the hawks get their way — that the United States does whatever it takes militarily to confront and destroy ISIS. Then what?
Answering that question requires taking seriously the outcomes of other recent U.S. interventions in the Greater Middle East. In 1991, when the first President Bush ejected Saddam Hussein’s army from Kuwait, Americans rejoiced, believing that they had won a decisive victory. A decade later, the younger Bush seemingly outdid his father by toppling the Taliban in Afghanistan and then making short work of Saddam himself — a liberation twofer achieved in less time than it takes Americans to choose a president. After the passage of another decade, Barack Obama got into the liberation act, overthrowing the Libyan dictator Muammar Gaddafi in what appeared to be a tidy air intervention with a clean outcome. As Secretary of State Hillary Clinton memorably put it, “We came, we saw, he died.” End of story.
In fact, subsequent events in each case mocked early claims of success or outright victory. Unanticipated consequences and complications abounded. “Liberation” turned out to be a prelude to chronic violence and upheaval.
Indeed, the very existence of the Islamic State (ISIS) today renders a definitive verdict on the Iraq wars over which the Presidents Bush presided, each abetted by a Democratic successor. A de facto collaboration of four successive administrations succeeded in reducing Iraq to what it is today: a dysfunctional quasi-state unable to control its borders or territory while serving as a magnet and inspiration for terrorists.
The United States bears a profound moral responsibility for having made such a hash of things there. Were it not for the reckless American decision to invade and occupy a nation that, whatever its crimes, had nothing to do with 9/11, the Islamic State would not exist. Per the famous Pottery Barn Rule attributed to former Secretary of State Colin Powell, having smashed Iraq to bits a decade ago, we can now hardly deny owning ISIS.
That the United States possesses sufficient military power to make short work of that “caliphate” is also the case. True, in both Syria and Iraq the Islamic State has demonstrated a disturbing ability to capture and hold large stretches of desert, along with several population centers. It has, however, achieved these successes against poorly motivated local forces of, at best, indifferent quality.
In that regard, the glibly bellicose editor of the Weekly Standard, William Kristol, is surely correct in suggesting that a well-armed contingent of 50,000 U.S. troops, supported by ample quantities of air power, would make mincemeat of ISIS in a toe-to-toe contest. Liberation of the various ISIS strongholds like Fallujah and Mosul in Iraq and Palmyra and Raqqa, its “capital,” in Syria would undoubtedly follow in short order.
In the wake of the recent attacks in Paris, the American mood is strongly trending in favor of this sort of escalation. Just about anyone who is anyone — the current occupant of the Oval Office partially excepted — favors intensifying the U.S. military campaign against ISIS. And why not? What could possibly go wrong? As Kristol puts it, "I don’t think there’s much in the way of unanticipated side effects that are going to be bad there."
It’s an alluring prospect. In the face of a sustained assault by the greatest military the world has ever seen, ISIS foolishly (and therefore improbably) chooses to make an Alamo-like stand. Whammo! We win. They lose. Mission accomplished.
Of course, that phrase recalls the euphoric early reactions to Operations Desert Storm in 1991, Enduring Freedom in 2001, Iraqi Freedom in 2003, and Odyssey Dawn, the Libyan intervention of 2011. Time and again the unanticipated side effects of U.S. military action turned out to be very bad indeed. In Kabul, Baghdad, or Tripoli, the Alamo fell, but the enemy dispersed or reinvented itself and the conflict continued. Assurances offered by Kristol that this time things will surely be different deserve to be taken with more than a grain of salt. Pass the whole shaker.
Embracing Generational War
Why this repeated disparity between perceived and actual outcomes? Why have apparent battlefield successes led so regularly to more violence and disorder? Before following Kristol’s counsel, Americans would do well to reflect on these questions.
Cue Professor Eliot A. Cohen. Shortly after 9/11, Cohen, one of this country’s preeminent military thinkers, characterized the conflict on which the United States was then embarking as “World War IV.” (In this formulation, the Cold War becomes World War III.) Other than in certain neoconservative quarters, the depiction did not catch on. Yet nearly a decade-and-a-half later, the Johns Hopkins professor and former State Department official is sticking to his guns. In an essay penned for the American Interestfollowing the recent Paris attacks, he returns to his theme. “It was World War IV in 2001,” Cohen insists. “It is World War IV today.” And to our considerable benefit he spells out at least some of the implications of casting the conflict in such expansive and evocative terms.
Now I happen to think that equating our present predicament in the Islamic world with the immensely destructive conflicts of the prior century is dead wrong. Yet it’s a proposition that Americans at this juncture should contemplate with the utmost seriousness.
In the United States today, confusion about what war itself signifies is widespread. Through misuse, misapplication, and above all misremembering, we have distorted the term almost beyond recognition. As one consequence, talk of war comes too easily off the tongues of the unknowing.
Not so with Cohen. When it comes to war, he has no illusions. Addressing that subject, he illuminates it, enabling us to see what war entails. So in advocating World War IV, he performs a great service, even if perhaps not the one he intends.
What will distinguish the war that Cohen deems essential? “Begin with endurance,” he writes. “This war will probably go on for the rest of my life, and well into my children’s.” Although American political leaders seem reluctant “to explain just how high the stakes are,” Cohen lays them out in direct, unvarnished language. At issue, he insists, is the American way of life itself, not simply “in the sense of rock concerts and alcohol in restaurants, but the more fundamental rights of freedom of speech and religion, the equality of women, and, most essentially, the freedom from fear and freedom to think.”
With so much on the line, Cohen derides the Obama administration’s tendency to rely on “therapeutic bombing, which will temporarily relieve the itch, but leave the wounds suppurating.” The time for such half-measures has long since passed. Defeating the Islamic State and “kindred movements” will require the U.S. to “kill a great many people.” To that end Washington needs “a long-range plan not to ‘contain’ but to crush” the enemy. Even with such a plan, victory will be a long way off and will require “a long, bloody, and costly process.”
Cohen’s candor and specificity, as bracing as they are rare, should command our respect. If World War IV describes what we are in for, then eliminating ISIS might figure as a near-term imperative, but it can hardly define the endgame. Beyond ISIS loom all those continually evolving “kindred movements” to which the United States will have to attend before it can declare the war itself well and truly won.
To send just tens of thousands of U.S. troops to clean up Syria and Iraq, as William Kristol and others propose, offers at best a recipe for winning a single campaign. Winning the larger war would involve far more arduous exertions. This Cohen understands, accepts, and urges others to acknowledge.
And here we come to the heart of the matter. For at least the past 35 years — that is, since well before 9/11 — the United States has been “at war” in various quarters of the Islamic world. At no point has it demonstrated the will or the ability to finish the job. Washington’s approach has been akin to treating cancer with a little bit of chemo one year and a one-shot course of radiation the next. Such gross malpractice aptly describes U.S. military policy throughout the Greater Middle East across several decades.
While there may be many reasons why the Iraq War of 2003 to 2011 and the still longer Afghanistan War yielded such disappointing results, Washington’s timidity in conducting those campaigns deserves pride of place. That most Americans might bridle at the term “timidity” reflects the extent to which they have deluded themselves regarding the reality of war.
In comparison to Vietnam, for example, Washington’s approach to waging its two principal post-9/11 campaigns was positively half-hearted. With the nation as a whole adhering to peacetime routines, Washington neither sent enough troops nor stayed anywhere near long enough to finish the job. Yes, we killed many tens of thousands of Iraqis and Afghans, but if winning World War IV requires, as Cohen writes, that we “break the back” of the enemy, then we obviously didn’t kill nearly enough.
Nor were Americans sufficiently willing to die for the cause. In South Vietnam, 58,000 G.I.s died in a futile effort to enable that country to survive. In Iraq and Afghanistan, where the stakes were presumably much higher, we pulled the plug after fewer than 7,000 deaths.
Americans would be foolish to listen to those like William Kristol who, even today, peddle illusions about war being neat and easy. They would do well instead to heed Cohen, who knows that war is hard and ugly.
What Would World War IV Look Like?
Yet when specifying the practical implications of generational war, Cohen is less forthcoming. From his perspective, this fourth iteration of existential armed conflict in a single century is not going well. But apart from greater resolve and bloody-mindedness, what will it take to get things on the right track?
As a thought experiment, let’s answer that question by treating it with the urgency that Cohen believes it deserves. After 9/11, certain U.S. officials thundered about “taking the gloves off.” In practice, however, with the notable exception of policies permitting torture and imprisonment without due process, the gloves stayed on. Take Cohen’s conception of World War IV at face value and that will have to change.
For starters, the country would have to move to something like a war footing, enabling Washington to raise a lot more troops and spend a lot more money over a very long period of time. Although long since banished from the nation’s political lexicon, the M-word — mobilization — would make a comeback. Prosecuting a generational war, after all, is going to require the commitment of generations.
Furthermore, if winning World War IV means crushing the enemy, as Cohen emphasizes, then ensuring that the enemy, once crushed, cannot recover would be hardly less important. And that requirement would prohibit U.S. forces from simply walking away from a particular fight even — or especially — when it might appear won.
At the present moment, defeating the Islamic State ranks as Washington’s number one priority. With the Pentagon already claiming a body count of 20,000 ISIS fighters without notable effect, this campaign won’t end anytime soon. But even assuming an eventually positive outcome, the task of maintaining order and stability in areas that ISIS now controls will remain. Indeed, that task will persist until the conditions giving rise to entities like ISIS are eliminated. Don’t expect French President François Hollande or British Prime Minister David Cameron to sign up for that thankless job. U.S. forces will own it. Packing up and leaving the scene won’t be an option.
How long would those forces have to stay? Extrapolating from recent U.S. occupations in Iraq and Afghanistan, something on the order of a quarter-century seems like a plausible approximation. So should our 45th president opt for a boots-on-the-ground solution to ISIS, as might well be the case, the privilege of welcoming the troops home could belong to the 48th or 49th occupant of the White House.
In the meantime, U.S. forces would have to deal with the various and sundry “kindred movements” that are already cropping up like crabgrass in country after country. Afghanistan — still? again? — would head the list of places requiring U.S. military attention. But other prospective locales would include such hotbeds of Islamist activity as Lebanon, Libya, Palestine, Somalia, and Yemen, along with several West African countries increasingly beset with insurgencies. Unless Egyptian, Pakistani, and Saudi security forces demonstrate the ability (not to mention the will) to suppress the violent radicals in their midst, one or more of those countries could also become the scene of significant U.S. military action.
Effective prosecution of World War IV, in other words, would require the Pentagon to plan for each of these contingencies, while mustering the assets needed for implementation. Allies might kick in token assistance — tokenism is all they have to offer — but the United States will necessarily carry most of the load.
What Would World War IV Cost?
During World War III (aka the Cold War), the Pentagon maintained a force structure ostensibly adequate to the simultaneous prosecution of two and a half wars. This meant having the wherewithal to defend Europe and the Pacific from communist aggression while still leaving something for the unexpected. World War IV campaigns are unlikely to entail anything on the scale of the Warsaw Pact attacking Western Europe or North Korea invading the South. Still, the range of plausible scenarios will require that U.S. forces be able to take on militant organizations C and D even while guarding against the resurgence of organizations A and B in altogether different geographic locations.
Even though Washington may try whenever possible to avoid large-scale ground combat, relying on air power (including drones) and elite Special Operations forces to do the actual killing, post-conflict pacification promises to be a manpower intensive activity. Certainly, this ranks as one of the most obvious lessons to emerge from World War IV’s preliminary phases: when the initial fight ends, the real work begins.
U.S. forces committed to asserting control over Iraq after the invasion of 2003 topped out at roughly 180,000. In Afghanistan, during the Obama presidency, the presence peaked at 110,000. In a historical context, these are not especially large numbers. At the height of the Vietnam War, for example, U.S. troop strength in Southeast Asia exceeded 500,000.
In hindsight, the Army general who, before the invasion of 2003, publicly suggested that pacifying postwar Iraq would require “several hundred thousand troops” had it right. A similar estimate applies to Afghanistan. In other words, those two occupations together could easily have absorbed 600,000 to 800,000 troops on an ongoing basis. Given the Pentagon’s standard three-to-one rotation policy, which assumes that for every unit in-country, a second is just back, and a third is preparing to deploy, you’re talking about a minimum requirement of between 1.8 and 2.4 million troops to sustain just two medium-sized campaigns — a figure that wouldn’t include some number of additional troops kept in reserve for the unexpected.
In other words, waging World War IV would require at least a five-fold increase in the current size of the U.S. Army — and not as an emergency measure but a permanent one. Such numbers may appear large, but as Cohen would be the first to point out, they are actually modest when compared to previous world wars. In 1968, in the middle of World War III, the Army had more than 1.5 million active duty soldiers on its rolls — this at a time when the total American population was less than two-thirds what it is today and when gender discrimination largely excluded women from military service. If it chose to do so, the United States today could easily field an army of two million or more soldiers.
Whether it could also retain the current model of an all-volunteer force is another matter. Recruiters would certainly face considerable challenges, even if Congress enhanced the material inducements for service, which since 9/11 have already included a succession of generous increases in military pay. A loosening of immigration policy, granting a few hundred thousand foreigners citizenship in return for successfully completing a term of enlistment might help. In all likelihood, however, as with all three previous world wars, waging World War IV would oblige the United States to revive the draft, a prospect as likely to be well-received as a flood of brown and black immigrant enlistees. In short, going all out to create the forces needed to win World War IV would confront Americans with uncomfortable choices.
The budgetary implications of expanding U.S. forces while conducting a perpetual round of what the Pentagon calls “overseas contingency operations” would also loom large. Precisely how much money an essentially global conflict projected to extend well into the latter half of the century would require is difficult to gauge. As a starting point, given the increased number of active duty forces, tripling the present Defense Department budget of more than $600 billion might serve as a reasonable guess.
At first glance, $1.8 trillion annually is a stupefyingly large figure. To make it somewhat more palatable, a proponent of World War IV might put that number in historical perspective. During the first phases of World War III, for example, the United States routinely allocated 10% or more of total gross domestic product (GDP) for national security. With that GDP today exceeding $17 trillion, apportioning 10% to the Pentagon would give those charged with managing World War IV a nice sum to work with and no doubt to build upon.
Of course, that money would have to come from somewhere. For several years during the last decade, sustaining wars in Iraq and Afghanistan pushed the federal deficit above a trillion dollars. As one consequence, the total national debt now exceeds annual GDP, having tripled since 9/11. How much additional debt the United States can accrue without doing permanent damage to the economy is a question of more than academic interest.
To avoid having World War IV produce an endless string of unacceptably large deficits, ratcheting up military spending would undoubtedly require either substantial tax increases or significant cuts in non-military spending, including big-ticket programs like Medicare and social security — precisely those, that is, which members of the middle class hold most dear.
In other words, funding World War IV while maintaining a semblance of fiscal responsibility would entail the kind of trade-offs that political leaders are loathe to make. Today, neither party appears up to taking on such challenges. That the demands of waging protracted war will persuade them to rise above their partisan differences seems unlikely. It sure hasn’t so far.
The Folly of World War IV
In his essay, Cohen writes, “we need to stop the circumlocutions.” Of those who would bear the direct burden of his world war, he says, “we must start telling them the truth.” He’s right, even if he himself is largely silent about what the conduct of World War IV is likely to exact from the average citizen.
As the United States enters a presidential election year, plain talk about the prospects of our ongoing military engagement in the Islamic world should be the order of the day. The pretense that either dropping a few more bombs or invading one or two more countries will yield a conclusive outcome amounts to more than an evasion. It is an outright lie.
As Cohen knows, winning World War IV would require dropping many, many more bombs and invading, and then occupying for years to come, many more countries. After all, it’s not just ISIS that Washington will have to deal with, but also its affiliates, offshoots, wannabes, and the successors almost surely waiting in the wings. And don’t forget al-Qaeda.
Cohen believes that we have no alternative. Either we get serious about fighting World War IV the way it needs to be fought or darkness will envelop the land. He is undeterred by the evidence that the more deeply we insert our soldiers into the Greater Middle East the more concerted the resistance they face; that the more militants we kill the more we seem to create; that the inevitable, if unintended, killing of innocents only serves to strengthen the hand of the extremists. As he sees it, with everything we believe in riding on the outcome, we have no choice but to press on.
While listening carefully to Cohen’s call to arms, Americans should reflect on its implications. Wars change countries and people. Embracing his prescription for World War IV would change the United States in fundamental ways. It would radically expand the scope and reach of the national security state, which, of course, includes agencies beyond the military itself. It would divert vast quantities of wealth to nonproductive purposes. It would make the militarization of the American way of life, a legacy of prior world wars, irreversible. By sowing fear and fostering impossible expectations of perfect security, it would also compromise American freedom in the name of protecting it. The nation that decades from now might celebrate VT Day — victory over terrorism — will have become a different place, materially, politically, culturally, and morally.
In my view, Cohen’s World War IV is an invitation to collective suicide. Arguing that no alternative exists to open-ended war represents not hard-nosed realism, but the abdication of statecraft. Yet here’s the ultimate irony: even without the name, the United States has already embarked upon something akin to a world war, which now extends into the far reaches of the Islamic world and spreads further year by year.
Incrementally, bit by bit, this nameless war has already expanded the scope and reach of the national security apparatus. It is diverting vast quantities of wealth to nonproductive purposes even as it normalizes the continuing militarization of the American way of life. By sowing fear and fostering impossible expectations of perfect security, it is undermining American freedom in the name of protecting it, and doing so right before our eyes.
Cohen rightly decries the rudderless character of the policies that have guided the (mis)conduct of that war thus far. For that critique we owe him a considerable debt. But the real problem is the war itself and the conviction that only through war can America remain America.
For a rich and powerful nation to conclude that it has no choice but to engage in quasi-permanent armed conflict in the far reaches of the planet represents the height of folly. Power confers choice. As citizens, we must resist with all our might arguments that deny the existence of choice. Whether advanced forthrightly by Cohen or fecklessly by the militarily ignorant, such claims will only perpetuate the folly that has already lasted far too long.
Andrew J. Bacevich, a TomDispatch regular, is professor emeritus of history and international relations at Boston University. He is the author of Breach of Trust: How Americans Failed Their Soldiers and Their Country, among other works. His new book, America’s War for the Greater Middle East (Random House), is due out in April 2016.
Copyright 2015 Andrew J. Bacevich
First came Fallujah, then Mosul, and later Ramadi in Iraq. Now, there is Kunduz, a provincial capital in northern Afghanistan. In all four places, the same story has played out: in cities that newspaper reporters like to call “strategically important,” security forces trained and equipped by the U.S. military at great expense simply folded, abandoning their posts (and much of their U.S.-supplied weaponry) without even mounting serious resistance. Called upon to fight, they fled. In each case, the defending forces gave way before substantially outnumbered attackers, making the outcomes all the more ignominious.
Together, these setbacks have rendered a verdict on the now more-or-less nameless Global War on Terrorism (GWOT). Successive blitzkriegs by ISIS and the Taliban respectively did more than simply breach Iraqi and Afghan defenses. They also punched gaping holes in the strategy to which the United States had reverted in hopes of stemming the further erosion of its position in the Greater Middle East.
Recall that, when the United States launched its GWOT soon after 9/11, it did so pursuant to a grandiose agenda. U.S. forces were going to imprint onto others a specific and exalted set of values. During President George W. Bush’s first term, this “freedom agenda” formed the foundation, or at least the rationale, for U.S. policy.
The shooting would stop, Bush vowed, only when countries like Afghanistan had ceased to harbor anti-American terrorists and countries like Iraq had ceased to encourage them. Achieving this goal meant that the inhabitants of those countries would have to change. Afghans and Iraqis, followed in due course by Syrians, Libyans, Iranians, and sundry others would embrace democracy, respect human rights, and abide by the rule of law, or else. Through the concerted application of American power, they would become different — more like us and therefore more inclined to get along with us. A bit less Mecca and Medina, a bit more “we hold these truths” and “of the people, by the people.”
So Bush and others in his inner circle professed to believe. At least some of them, probably including Bush himself, may actually have done so.
History, at least the bits and pieces to which Americans attend, seemed to endow such expectations with a modicum of plausibility. Had not such a transfer of values occurred after World War II when the defeated Axis Powers had hastily thrown in with the winning side? Had it not recurred as the Cold War was winding down, when previously committed communists succumbed to the allure of consumer goods and quarterly profit statements?
If the appropriate mix of coaching and coercion were administered, Afghans and Iraqis, too, would surely take the path once followed by good Germans and nimble Japanese, and subsequently by Czechs tired of repression and Chinese tired of want. Once liberated, grateful Afghans and Iraqis would align themselves with a conception of modernity that the United States had pioneered and now exemplified. For this transformation to occur, however, the accumulated debris of retrograde social conventions and political arrangements that had long retarded progress would have to be cleared away. This was what the invasions of Afghanistan (Operation Enduring Freedom!) and Iraq (Operation Iraqi Freedom!) were meant to accomplish in one fell swoop by a military the likes of which had (to hear Washington tell it) never been seen in history. POW!
Standing Them Up As We Stand Down
Concealed within that oft-cited “freedom” — the all-purpose justification for deploying American power — were several shades of meaning. The term, in fact, requires decoding. Yet within the upper reaches of the American national security apparatus, one definition takes precedence over all others. In Washington, freedom has become a euphemism for dominion. Spreading freedom means positioning the United States to call the shots. Seen in this context, Washington’s expected victories in both Afghanistan and Iraq were meant to affirm and broaden its preeminence by incorporating large parts of the Islamic world into the American imperium. They would benefit, of course, but to an even greater extent, so would we.
Alas, liberating Afghans and Iraqis turned out to be a tad more complicated than the architects of Bush’s freedom (or dominion) agenda anticipated. Well before Barack Obama succeeded Bush in January 2009, few observers — apart from a handful of ideologues and militarists — clung to the fairy tale of U.S. military might whipping the Greater Middle East into shape. Brutally but efficiently, war had educated the educable. As for the uneducable, they persisted in taking their cues from Fox News and the Weekly Standard.
Yet if the strategy of transformation via invasion and “nation building” had failed, there was a fallback position that seemed to be dictated by the logic of events. Together, Bush and Obama would lower expectations as to what the United States was going to achieve, even as they imposed new demands on the U.S. military, America’s go-to outfit in foreign policy, to get on with the job.
Rather than midwifing fundamental political and cultural change, the Pentagon was instead ordered to ramp up its already gargantuan efforts to create local militaries (and police forces) capable of maintaining order and national unity. President Bush provided aconcise formulation of the new strategy: “As the Iraqis stand up, we will stand down.” Under Obama, after his own stab at a “surge,” the dictum applied to Afghanistan as well. Nation-building had flopped. Building armies and police forces able to keep a lid on things now became the prevailing definition of success.
The United States had, of course, attempted this approach once before, with unhappy results. This was in Vietnam. There, efforts to destroy North Vietnamese and Viet Cong forces intent on unifying their divided country had exhausted both the U.S. military and the patience of the American people. Responding to the logic of events, Presidents Lyndon Johnson and Richard Nixon had a tacitly agreed upon fallback position. As the prospects of American forces successfully eliminating threats to South Vietnamese security faded, the training and equipping of the South Vietnamese to defend themselves became priority number one.
Dubbed “Vietnamization,” this enterprise ended in abject failure with the fall of Saigon in 1975. Yet that failure raised important questions to which members of the national security elite might have attended: Given a weak state with dubious legitimacy, how feasible is it to expect outsiders to invest indigenous forces with genuine fighting power? How do differences in culture or history or religion affect the prospects for doing so? Can skill ever make up for a deficit of will? Can hardware replace cohesion? Above all, if tasked with giving some version of Vietnamization another go, what did U.S. forces need to do differently to ensure a different result?
At the time, with general officers and civilian officials more inclined to forget Vietnam than contemplate its implications, these questions attracted little attention. Instead, military professionals devoted themselves to gearing up for the next fight, which they resolved would be different. No more Vietnams — and therefore no more Vietnamization.
After the Gulf War of 1991, basking in the ostensible success of Operation Desert Storm, the officer corps persuaded itself that it had once and for all banished its Vietnam-induced bad memories. As Commander-in-Chief George H.W. Bush so memorably put it, “By God, we’ve kicked the Vietnam syndrome once and for all.”
In short, the Pentagon now had war figured out. Victory had become a foregone conclusion. As it happened, this self-congratulatory evaluation left U.S. troops ill-prepared for the difficulties awaiting them after 9/11 when interventions in Afghanistan and Iraq departed from the expected script, which posited short wars by a force beyond compare ending in decisive victories. What the troops got were two very long wars with no decision whatsoever. It was Vietnam on a smaller scale all over again — times two.
For Bush in Iraq and Obama after a brief, half-hearted flirtation with counterinsurgency in Afghanistan, opting for a variant of Vietnamization proved to be a no-brainer. Doing so offered the prospect of an escape from all complexities. True enough, Plan A — we export freedom and democracy — had fallen short. But Plan B — they (with our help) restore some semblance of stability — could enable Washington to salvage at least partial success in both places. With the bar suitably lowered, a version of “Mission Accomplished” might still be within reach.
If Plan A had looked to U.S. troops to vanquish their adversaries outright, Plan B focused on prepping besieged allies to take over the fight. Winning outright was no longer the aim — given the inability of U.S. forces to do so, this was self-evidently not in the cards — but holding the enemy at bay was.
Although allied with the United States, only in the loosest sense did either Iraq or Afghanistan qualify as a nation-state. Only nominally and intermittently did governments in Baghdad and Kabul exercise a writ of authority commanding respect from the people known as Iraqis and Afghans. Yet in the Washington of George Bush and Barack Obama, a willing suspension of disbelief became the basis for policy. In distant lands where the concept of nationhood barely existed, the Pentagon set out to create a full-fledged national security apparatus capable of defending that aspiration as if it represented reality. From day one, this was a faith-based undertaking.
As with any Pentagon project undertaken on a crash basis, this one consumed resources on a gargantuan scale — $25 billion in Iraq and an even more staggering $65 billion in Afghanistan. “Standing up” the requisite forces involved the transfer of vast quantities of equipment and the creation of elaborate U.S. training missions. Iraqi and Afghan forces acquired all the paraphernalia of modern war — attack aircraft or helicopters, artillery and armored vehicles, night vision devices and drones. Needless to say, stateside defense contractors lined up in droves to cash in.
Based on their performance, the security forces on which the Pentagon has lavished years of attention remain visibly not up to the job. Meanwhile, ISIS warriors, without the benefit of expensive third-party mentoring, appear plenty willing to fight and die for their cause. Ditto Taliban fighters in Afghanistan. The beneficiaries of U.S. assistance? Not so much. Based on partial but considerable returns, Vietnamization 2.0 seems to be following an eerily familiar trajectory that should remind anyone of Vietnamization 1.0. Meanwhile, the questions that ought to have been addressed back when our South Vietnamese ally went down to defeat have returned with a vengeance.
The most important of those questions challenges the assumption that has informed U.S. policy in the Greater Middle East since the freedom agenda went south: that Washington has a particular knack for organizing, training, equipping, and motivating foreign armies. Based on the evidence piling up before our eyes, that assumption appears largely false. On this score, retired Lieutenant General Karl Eikenberry, a former military commander and U.S. ambassador in Afghanistan, has rendered an authoritative judgment. “Our track record at building [foreign] security forces over the past 15 years is miserable,” he recently told the New York Times. Just so.
Fighting the Wrong War
Some might argue that trying harder, investing more billions, sending yet more equipment for perhaps another 15 years will produce more favorable results. But this is akin to believing that, given sufficient time, the fruits of capitalism will ultimately trickle down to benefit the least among us or that the march of technology holds the key to maximizing human happiness. You can believe it if you want, but it’s a mug’s game.
Indeed, the United States would be better served if policymakers abandoned the pretense that the Pentagon possesses any gift whatsoever for “standing up” foreign military forces. Prudence might actually counsel that Washington assume instead, when it comes to organizing, training, equipping, and motivating foreign armies, that the United States is essentially clueless.
Exceptions may exist. For example, U.S. efforts have probably helped boost the fighting power of the Kurdish peshmerga. Yet such exceptions are rare enough to prove the rule. Keep in mind that before American trainers and equipment ever showed up, Iraq’s Kurds already possessed the essential attributes of nationhood. Unlike Afghans and Iraqis, Kurds do not require tutoring in the imperative of collective self-defense.
What are the policy implications of giving up the illusion that the Pentagon knows how to build foreign armies? The largest is this: subletting war no longer figures as a plausible alternative to waging it directly. So where U.S. interests require that fighting be done, like it or not, we’re going to have to do that fighting ourselves. By extension, in circumstances where U.S. forces are demonstrably incapable of winning or where Americans balk at any further expenditure of American blood — today in the Greater Middle East both of these conditions apply — then perhaps we shouldn’t be there. To pretend otherwise is to throw good money after bad or, as a famous American general once put it, to wage (even if indirectly) “the wrong war, at the wrong place, at the wrong time, and with the wrong enemy.” This we have been doing now for several decades across much of the Islamic world.
In American politics, we await the officeholder or candidate willing to state the obvious and confront its implications.
Andrew J. Bacevich, a TomDispatch regular, is professor emeritus of history and international relations at Boston University. He is the author of Breach of Trust: How Americans Failed Their Soldiers and Their Country, among other works.
Copyright 2015 Andrew Bacevich
On Building Armies (and Watching Them Fail)
There is a peculiar form of insanity in which a veneer of rationality distracts attention from the madness lurking just beneath the surface. When Alice dove down her rabbit hole to enter a place where smirking cats offered directions, ill-mannered caterpillars dispensed advice, and Mock Turtles constituted the principal ingredient in Mock Turtle soup, she experienced something of the sort.
Yet, as the old adage goes, truth can be even stranger than fiction. For a real-life illustration of this phenomenon, one need look no further than Washington and its approach to national security policy. Viewed up close, it all seems to hang together. Peer out of the rabbit hole and the sheer lunacy quickly becomes apparent.
Consider this recent headline: “U.S. to Ship 2,000 Anti-Tank Missiles To Iraq To Help Fight ISIS.” The accompanying article describes a Pentagon initiative to reinforce Iraq’s battered army with a rush order of AT-4s. A souped-up version of the old bazooka, the AT-4 is designed to punch holes through armored vehicles.
Taken on its own terms, the decision makes considerable sense. Iraqi forces need something to counter a fearsome new tactic of the Islamic State of Iraq and Syria (ISIS): suicide bombers mounted in heavily armored wheeled vehicles. Improved antitank capabilities certainly could help Iraqi troops take out such bombers before they reach their intended targets. The logic is airtight. The sooner these weapons get into the hands of Iraqi personnel, the better for them — and so the better for us.
As it turns out, however, the vehicle of choice for ISIS suicide bombers these days is the up-armored Humvee. In June 2014, when the Iraqi Army abandoned the country’s second largest city, Mosul, ISIS acquired 2,300 made-in-the-U.S.A. Humvees. Since then, it’s captured even more of them.
As U.S. forces were themselves withdrawing from Iraq in 2011, they bequeathed a huge fleet of Humvees to the “new” Iraqi army it had built to the tune of $25 billion. Again, the logic of doing so was impeccable: Iraqi troops needed equipment; shipping used Humvees back to the U.S. was going to cost more than they were worth. Better to give them to those who could put them to good use. Who could quarrel with that?
Before they handed over the used equipment, U.S. troops had spent years trying to pacify Iraq, where order had pretty much collapsed after the invasion of 2003. American troops in Iraq had plenty of tanks and other heavy equipment, but once the country fell into insurgency and civil war, patrolling Iraqi cities required something akin to a hopped-up cop car. The readily available Humvee filled the bill. When it turned out that troops driving around in what was essentially an oversized jeep were vulnerable to sniper fire and roadside bombs, “hardening” those vehicles to protect the occupants became a no-brainer — as even Secretary of Defense Donald Rumsfeld eventually recognized.
At each step along the way, the decisions made possessed a certain obvious logic. It’s only when you get to the end — giving Iraqis American-made weapons to destroy specially hardened American-made military vehicles previously provided to those same Iraqis — that the strangely circular and seriously cuckoo Alice-in-Wonderland nature of the entire enterprise becomes apparent.
AT-4s blowing up those Humvees — with fingers crossed that the anti-tank weapons don’t also fall into the hands of ISIS militants — illustrates in microcosm the larger madness of Washington’s policies concealed by the superficial logic of each immediate situation.
The Promotion of Policies That Have Manifestly Failed
Let me provide a firsthand illustration. A week ago, I appeared on a network television news program to discuss American policy in Iraq and in particular the challenges posed by ISIS. The other guests were former Secretary of Defense and CIA Director Leon Panetta, former Undersecretary of Defense for Policy and current CEO of a Washington think tank Michelle Flournoy, and retired four-star general Anthony Zinni who had once headed up United States Central Command.
Washington is a city in which whatever happens within the current news cycle trumps all other considerations, whether in the immediate or distant past. So the moderator launched the discussion by asking the panelists to comment on President Obama’s decision, announced earlier that very day, to plus-up the 3,000-strong train-and-equip mission to Iraq with an additional 450 American soldiers, the latest ratcheting up of ongoing U.S. efforts to deal with ISIS.
Panetta spoke first and professed wholehearted approval of the initiative. “Well, there’s no question that I think the president’s taken the right step in adding these trainers and advisers.” More such steps — funneling arms to Iraqi Kurds and Sunnis and deploying U.S. Special Operations Forces to hunt down terrorists — were “going to be necessary in order to be able to achieve the mission that we have embarked on.” That mission was of critical importance. Unless defeated, ISIS would convert Iraq into “a base [for] attacking our country and attacking our homeland.”
Flournoy expressed a similar opinion. She called the decision to send additional trainers “a good move and a smart move,” although she, too, hoped that it was only the “first step in a broader series” of escalatory actions. If anything, her view of ISIS was more dire than that of her former Pentagon boss. She called it “the new jihad — violent jihadist vanguard in the Middle East and globally.” Unless stopped, ISIS was likely to become “a global network” with “transnational objectives,” while its “thousands of foreign fighters” from the West and Gulf states were eventually going to “return and be looking to carry out jihad in their home countries.”
General Zinni begged to differ — not on the nature of the danger confronting Washington, but on what to do about it. He described the present policy as “almost déjà vu,” a throwback “to Vietnam before we committed the ground forces. We dribble in more and more advisers and support.”
“We’re not fully committed to this fight,” the general complained. “We use terms like destroy. I can tell you, you could put ground forces on the ground now and we can destroy ISIS.” Zinni proposed doing just that. No more shilly-shallying. The template for action was readily at hand. “The last victory, clear victory that we had was in the first Gulf War,” he said. And what were the keys to success then? “We used overwhelming force. We ended it quickly. We went to the U.N. and got a resolution. We built a coalition. And that ought to be a model we ought to look at.” In short, go big, go hard, go home.
Panetta disagreed. He had a different template in mind. The Iraq War of 2003-2011 had clearly shown that “we know how to do this, and we know how to win at doing this.” The real key was to allow America’s generals a free hand to do what needed to be done. “[A]ll we really do need to do is to be able to give our military commanders the flexibility to design not only the strategy to degrade ISIS, but the larger strategy we need in order to defeat ISIS.” Unleashing the likes of Delta Force or SEAL Team 6 with some missile-firing drones thrown in for good measure was likely to suffice.
For her part, Flournoy thought the real problem was “making sure that there is Iraqi capacity to hold the territory, secure it long-term, so that ISIS doesn’t come back again. And that involves the larger political compromises” — the ones the Iraqis themselves needed to make. At the end of the day, the solution was an Iraqi army willing and able to fight and an Iraqi government willing and able to govern effectively. On that score, there was much work to be done.
Panetta then pointed out that none of this was in the cards unless the United States stepped up to meet the challenge. “[I]f the United States doesn’t provide leadership in these crises, nobody else will.” That much was patently obvious. Other countries and the Iraqis themselves might pitch in, “but we have to provide that leadership. We can’t just stand on the sidelines wringing our hands. I mean… ask the people of Paris what happened there with ISIS. Ask the people in Brussels what happened there with ISIS. What happened in Toronto? What’s happened in this country as a result of the threat from ISIS?”
Ultimately, everything turned on the willingness of America to bring order and stability out of chaos and confusion. Only the United States possessed the necessary combination of wisdom, competence, and strength. Here was a proposition to which Flournoy and Zinni readily assented.
With Alice in Washington
To participate in an exchange with these pillars of the Washington establishment was immensely instructive. Only nominally did their comments qualify as a debate. Despite superficial differences, the discussion was actually an exercise in affirming the theology of American national security — those essential matters of faith that define continuities of policy in Washington, whatever administration is in power.
In that regard, apparent disagreement on specifics masked a deeper consensus consisting of three elements:
* That ISIS represents something akin to an existential threat to the United States, the latest in a long line going back to the totalitarian ideologies of the last century; fascism and communism may be gone, but danger is ever present.
* That if the United States doesn’t claim ownership of the problem of Iraq, the prospects of “solving” it are nil; action or inaction by Washington alone, that is, determines the fate of the planet.
* That the exercise of leadership implies, and indeed requires, employing armed might; without a willingness to loose military power, global leadership is inconceivable.
In a fundamental respect, the purpose of the national security establishment, including the establishment media, is to shield that tripartite consensus from critical examination. This requires narrowing the aperture of analysis so as to exclude anything apart from the here-and-now. The discussion in which I participated provided a vehicle for doing just that. It was an exercise aimed at fostering collective amnesia.
So what the former secretary of defense, think tank CEO, and retired general chose not to say in fretting about ISIS is as revealing as what they did say. Here are some of the things they chose to overlook:
* ISIS would not exist were it not for the folly of the United States in invading — and breaking — Iraq in the first place; we created the vacuum that ISIS is now attempting to fill.
* U.S. military efforts to pacify occupied Iraq from 2003 to 2011 succeeded only in creating a decent interval for the United States to withdraw without having to admit to outright defeat; in no sense did “our” Iraq War end in anything remotely approximating victory, despite the already forgotten loss of thousands of American lives and the expenditure of trillions of dollars.
* For more than a decade and at very considerable expense, the United States has been attempting to create an Iraqi government that governs and an Iraqi army that fights; the results of those efforts speak for themselves: they have failed abysmally.
Now, these are facts. Acknowledging them might suggest a further conclusion: that anyone proposing ways for Washington to put things right in Iraq ought to display a certain sense of humility. The implications of those facts — behind which lies a policy failure of epic proportions — might even provide the basis for an interesting discussion on national television. But that would assume a willingness to engage in serious self-reflection. This, the culture of Washington does not encourage, especially on matters related to basic national security policy.
My own contribution to the televised debate was modest and ineffectual. Toward the end, the moderator offered me a chance to redeem myself. What, she asked, did I think about Panetta’s tribute to the indispensability of American leadership?
A fat pitch that I should have hit it out of the park. Instead, I fouled it off. What I should have said was this: leadership ought to mean something other than simply repeating and compounding past mistakes. It should require more than clinging to policies that have manifestly failed. To remain willfully blind to those failures is not leadership, it’s madness.
Not that it would have mattered if I had. When it comes to Iraq, we’re already halfway back down Alice’s rabbit hole.
Andrew J. Bacevich, a TomDispatch regular, is writing a military history of America’s War for the Greater Middle East. His most recent book is Breach of Trust: How Americans Failed Their Soldiers and Their Country.
Copyright 2015 Andrew J. Bacevich
Washington in Wonderland
First, they tried to shoot the dogs. Next, they tried to poison them with strychnine. When both failed as efficient killing methods, British government agents and U.S. Navy personnel used raw meat to lure the pets into a sealed shed. Locking them inside, they gassed the howling animals with exhaust piped in from U.S. military vehicles. Then, setting coconut husks ablaze, they burned the dogs’ carcasses as their owners were left to watch and ponder their own fate.
The truth about the U.S. military base on the British-controlled Indian Ocean island of Diego Garcia is often hard to believe. It would be easy enough to confuse the real story with fictional accounts of the island found in the Transformers movies, on the television series 24, and in Internet conspiracy theories about the disappearance of Malaysia Airlines flight MH370.
While the grim saga of Diego Garcia frequently reads like fiction, it has proven all too real for the people involved. It’s the story of a U.S. military base built on a series of real-life fictions told by U.S. and British officials over more than half a century. The central fiction is that the U.S. built its base on an “uninhabited” island. That was “true” only because the indigenous people were secretly exiled from the Chagos Archipelago when the base was built. Although their ancestors had lived there since the time of the American Revolution, Anglo-American officials decided, as one wrote, to “maintain the fiction that the inhabitants of Chagos [were] not a permanent or semi-permanent population,” but just “transient contract workers.” The same official summed up the situation bluntly: “We are able to make up the rules as we go along.”
And so they did: between 1968 and 1973, American officials conspired with their British colleagues to remove the Chagossians, carefully hiding their expulsion from Congress, Parliament, the U.N., and the media. During the deportations, British agents and members of a U.S. Navy construction battalion rounded up and killed all those pet dogs. Their owners were then deported to the western Indian Ocean islands of Mauritius and the Seychelles, 1,200 miles from their homeland, where they received no resettlement assistance. More than 40 years after their expulsion, Chagossians generally remain the poorest of the poor in their adopted lands, struggling to survive in places that outsiders know as exotic tourist destinations.
During the same period, Diego Garcia became a multi-billion-dollar Navy and Air Force base and a central node in U.S. military efforts to control the Greater Middle East and its oil and natural gas supplies. The base, which few Americans are aware of, is more important strategically and more secretive than the U.S. naval base-cum-prison at Guantánamo Bay, Cuba. Unlike Guantánamo, no journalist has gotten more than a glimpse of Diego Garcia in more than 30 years. And yet, it has played a key role in waging the Gulf War, the 2003 invasion of Iraq, the U.S.-led war in Afghanistan, and the current bombing campaign against the Islamic State in Syria and Iraq.
Following years of reports that the base was a secret CIA “black site” for holding terrorist suspects and years of denials by U.S. and British officials, leaders on both sides of the Atlantic finally fessed up in 2008. “Contrary to earlier explicit assurances,” said Secretary of State for Foreign and Commonwealth Affairs David Miliband, Diego Garcia had indeed played at least some role in the CIA’s secret “rendition” program.
Last year, British officials claimed that flight log records, which might have shed light on those rendition operations, were “incomplete due to water damage” thanks to “extremely heavy weather in June 2014.” A week later, they suddenly reversed themselves, saying that the “previously wet paper records have been dried out.” Two months later, they insisted the logs had not dried out at all and were “damaged to the point of no longer being useful.” Except that the British government’s own weather data indicates that June 2014 was an unusually dry month on Diego Garcia. A legal rights advocate said British officials “could hardly be less credible if they simply said ‘the dog ate my homework.’”
And these are just a few of the fictions underlying the base that occupies the Chagossians’ former home and that the U.S. military has nicknamed the “Footprint of Freedom.” After more than four decades of exile, however, with a Chagossian movement to return to their homeland growing, the fictions of Diego Garcia may finally be crumbling.
The story of Diego Garcia begins in the late eighteenth century. At that time, enslaved peoples from Africa, brought to work on Franco-Mauritian coconut plantations, became the first settlers in the Chagos Archipelago. Following emancipation and the arrival of indentured laborers from India, a diverse mixture of peoples created a new society with its own language, Chagos Kreol. They called themselves the Ilois — the Islanders.
While still a plantation society, the archipelago, by then under British colonial control, provided a secure life featuring universal employment and numerous social benefits on islands described by many as idyllic. “That beautiful atoll of Diego Garcia, right in the middle of the ocean,” is how Stuart Barber described it in the late 1950s. A civilian working for the U.S. Navy, Barber would become the architect of one of the most powerful U.S. military bases overseas.
Amid Cold War competition with the Soviet Union, Barber and other officials were concerned that there was almost no U.S. military presence in and around the Indian Ocean. Barber noted that Diego Garcia’s isolation — halfway between Africa and Indonesia and 1,000 miles south of India — ensured that it would be safe from attack, yet was still within striking distance of territory from southern Africa and the Middle East to South and Southeast Asia.
Guided by Barber’s idea, the administrations of John F. Kennedy and Lyndon Johnson convinced the British government to detach the Chagos Archipelago from colonial Mauritius and create a new colony, which they called the British Indian Ocean Territory. Its sole purpose would be to house U.S. military facilities.
During secret negotiations with their British counterparts, Pentagon and State Department officials insisted that Chagos come under their “exclusive control (without local inhabitants),” embedding an expulsion order in a polite-looking parenthetical phrase. U.S. officials wanted the islands “swept” and “sanitized.” British officials appeared happy to oblige, removing a people one official called “Tarzans” and, in a racist reference to Robinson Crusoe, “Man Fridays.”
“Absolutely Must Go”
This plan was confirmed with an “exchange of notes” signed on December 30, 1966, by U.S. and British officials, as one of the State Department negotiators told me, “under the cover of darkness.” The notes effectively constituted a treaty but required no Congressional or Parliamentary approval, meaning that both governments could keep their plans hidden.
According to the agreement, the United States would gain use of the new colony “without charge.” This was another fiction. In confidential minutes, the United States agreed to secretly wipe out a $14 million British military debt, circumventing the need to ask Congress for funding. In exchange, the British agreed to take the “administrative measures” necessary for “resettling the inhabitants.”
Those measures meant that, after 1967, any Chagossians who left home for medical treatment or a routine vacation in Mauritius were barred from returning. Soon, British officials began restricting the flow of food and medical supplies to Chagos. As conditions deteriorated, more islanders began leaving. By 1970, the U.S. Navy had secured funding for what officials told Congress would be an “austere communications station.” They were, however, already planning to ask for additional funds to expand the facility into a much larger base. As the Navy’s Office of Communications and Cryptology explained, “The communications requirements cited as justification are fiction.” By the 1980s, Diego Garcia would become a billion-dollar garrison.
In briefing papers delivered to Congress, the Navy described Chagos’s population as “negligible,” with the islands “for all practical purposes… uninhabited.” In fact, there were around 1,000 people on Diego Garcia in the 1960s and 500 to 1,000 more on other islands in the archipelago. With Congressional funds secured, the Navy’s highest-ranking admiral, Elmo Zumwalt, summed up the Chagossians’ fate in a 1971 memo of exactly three words: “Absolutely must go.”
The authorities soon ordered the remaining Chagossians — generally allowed no more than a single box of belongings and a sleeping mat — onto overcrowded cargo ships destined for Mauritius and the Seychelles. By 1973, the last Chagossians were gone.
At their destinations, most of the Chagossians were literally left on the docks, homeless, jobless, and with little money. In 1975, two years after the last removals, a Washington Post reporter found them living in “abject poverty.”
Aurélie Lisette Talate was one of the last to go. “I came to Mauritius with six children and my mother,” she told me. “We got our house… but the house didn’t have a door, didn’t have running water, didn’t have electricity. And then my children and I began to suffer. All my children started getting sick.”
Within two months, two of her children were dead. The second was buried in an unmarked grave because she lacked money for a proper burial. Aurélie experienced fainting spells herself and couldn’t eat. “We were living like animals. Land? We had none… Work? We had none. Our children weren’t going to school.”
Today, most Chagossians, who now number more than 5,000, remain impoverished. In their language, their lives are ones of lamizer(impoverished misery) and sagren (profound sorrow and heartbreak over being exiled from their native lands). Many of the islanders attribute sickness and even death to sagren. “I had something that had been affecting me for a long time, since we were uprooted,” was the way Aurélie explained it to me. “This sagren, this shock, it was this same problem that killed my child. We weren’t living free like we did in our natal land.”
Struggling for Justice
From the moment they were deported, the Chagossians demanded to be returned or at least properly resettled. After years of protest, including five hunger strikes led by women like Aurélie Talate, some in Mauritius received the most modest of compensation from the British government: small concrete houses, tiny plots of land, and about $6,000 per adult. Many used the money to pay off large debts they had accrued. For most, conditions improved only marginally. Those living in the Seychelles received nothing.
The Chagossian struggle was reinvigorated in 1997 with the launching of a lawsuit against the British government. In November 2000, the British High Court ruled the removal illegal. In 2001 and 2002, most Chagossians joined new lawsuits in both American and British courts demanding the right to return and proper compensation for their removal and for resettling their islands. The U.S. suit was ultimately dismissed on the grounds that the judiciary can’t, in most circumstances, overrule the executive branch on matters of military and foreign policy. In Britain, the Chagossians were more successful. In 2002, they secured the right to full U.K. citizenship. Over 1,000 Chagossians have since moved to Britain in search of better lives. Twice more, British courts ruled in the people’s favor, with judges calling the government’s behavior “repugnant” and an “abuse of power.”
On the government’s final appeal, however, Britain’s then highest court, the Law Lords in the House of Lords, upheld the exile in a 3-2 decision. The Chagossians appealed to the European Court of Human Rights to overturn the ruling.
A Green Fiction
Before the European Court could rule, the British government announced the creation of the world’s largest Marine Protected Area (MPA) in the Chagos Archipelago. The date of the announcement, April Fool’s Day 2010, should have been a clue that there was more than environmentalism behind the move. The MPA banned commercial fishing and limited other human activity in the archipelago, endangering the viability of any resettlement efforts.
And then came WikiLeaks. In December 2010, it released a State Department cable from the U.S. Embassy in London quoting a senior Foreign and Commonwealth Office official saying that the “former inhabitants would find it difficult, if not impossible, to pursue their claim for resettlement on the islands if the entire Chagos Archipelago were a marine reserve.” U.S. officials agreed. According to the Embassy, Political Counselor Richard Mills wrote, “Establishing a marine reserve might, indeed… be the most effective long-term way to prevent any of the Chagos Islands’ former inhabitants or their descendants from resettling.”
Not surprisingly, the main State Department concern was whether the MPA would affect base operations. “We are concerned,” the London Embassy noted, that some “would come to see the existence of a marine reserve as inherently inconsistent with the military use of Diego Garcia.” British officials assured the Americans there would be “no constraints on military operations.”
Although the European Court of Human Rights ultimately ruled against the Chagossians in 2013, this March, a U.N. tribunal found that the British government had violated international law in creating the Marine Protected Area. Next week, Chagossians will challenge the MPA and their expulsion before the British Supreme Court (now Britain’s highest) armed with the U.N. ruling and revelations that the government won its House of Lords decision with the help of a fiction-filled resettlement study.
Meanwhile, the European Parliament has passed a resolution calling for the Chagossians’ return, the African Union has condemned their deportation as unlawful, three Nobel laureates have spoken out on their behalf, and dozens of members of the British Parliament have joined a group supporting their struggle. In January, a British government “feasibility study” found no significant legal barriers to resettling the islands and outlined several possible resettlement plans, beginning with Diego Garcia. (Notably, Chagossians are not calling for the removal of the U.S. military base. Their opinions about it are diverse and complicated. At least some would prefer jobs on the base to lives of poverty and unemployment in exile.)
Of course, no study was needed to know that resettlement on Diego Garcia and in the rest of the archipelago is feasible. The base, which has hosted thousands of military and civilian personnel for more than 40 years, has demonstrated that well enough. In fact, Stuart Barber, its architect, came to the same conclusion in the years before his death. After he learned of the Chagossians’ fate, he wrote a series of impassioned letters to Human Rights Watch and the British Embassy in Washington, among others, imploring them to help the Chagossians return home. In a letter to Alaska Senator Ted Stevens, he said bluntly that the expulsion “wasn’t necessary militarily.”
In a 1991 letter to the Washington Post, Barber suggested that it was time “to redress the inexcusably inhuman wrongs inflicted by the British at our insistence.” He added, “Substantial additional compensation for 18-25 past years of misery for all evictees is certainly in order. Even if that were to cost $100,000 per family, we would be talking of a maximum of $40-50 million, modest compared with our base investment there.”
Almost a quarter-century later, nothing has yet been done. In 2016, the initial 50-year agreement for Diego Garcia will expire. While it is subject to an automatic 20-year renewal, it provides for a two-year renegotiation period, which commenced in late 2014. With momentum building in support of the Chagossians, they are optimistic that the two governments will finally correct this historic injustice. That U.S. officials allowed the British feasibility study to consider resettlement plans for Diego Garcia is a hopeful sign that Anglo-American policy may finally be shifting to right a great wrong in the Indian Ocean.
Unfortunately, Aurélie Talate will never see the day when her people go home. Like others among the rapidly dwindling number of Chagossians born in the archipelago, Aurélie died in 2012 at age 70, succumbing to the heartbreak that is sagren.
David Vine, a TomDispatch regular, is associate professor of anthropology at American University in Washington, D.C. His new book, Base Nation: How U.S. Military Bases Abroad Harm America and the World will be published in August as part of the American Empire Project (Metropolitan Books). He is also the author of Island of Shame: The Secret History of the U.S. Military Base on Diego Garcia. He has written for the New York Times, the Washington Post, the Guardian, and Mother Jones, among other publications. For more of his writing, visit www.davidvine.net.
Copyright 2015 David Vine
The Truth About Diego Garcia
En route back to Washington at the tail end of his most recent overseas trip, John Kerry, America’s peripatetic secretary of state, stopped off in France “to share a hug with all of Paris.” Whether Paris reciprocated the secretary’s embrace went unrecorded.
Despite the requisite reference to General Pershing (“Lafayette, we are here!”) and flying James Taylor in from the 1960s to assure Parisians that “You’ve Got a Friend,” in the annals of American diplomacy Kerry’s hug will likely rank with President Eisenhower’s award of the Legion of Merit to Nicaraguan dictator Anastasio Somoza for “exceptionally meritorious conduct” and Jimmy Carter’s acknowledgment of the “admiration and love” said to define the relationship between the Iranian people and their Shah. In short, it was a moment best forgotten.
Not one of the signature foreign policy initiatives conceived in Obama’s first term has borne fruit. When it came to making a fresh start with the Islamic world, responsibly ending the “dumb” war in Iraq (while winning the “necessary” one in Afghanistan), “resetting” U.S.-Russian relations, and “pivoting” toward Asia, mark your scorecard 0 for 4.
There’s no doubt that when Kerry arrived at the State Department he brought with him some much-needed energy. That he is giving it his all — the department’s website reports that the secretary has already clocked over 682,000 miles of travel — is doubtless true as well. The problem is the absence of results. Remember when his signature initiative was going to be an Israeli-Palestinian peace deal? Sadly, that quixotic plan, too, has come to naught.
Yes, Team Obama “got” bin Laden. And, yes, it deserves credit for abandoning a self-evidently counterproductive 50-plus-year-old policy toward Cuba and for signing a promising agreement with China on climate change. That said, the administration’s overall record of accomplishment is beyond thin, starting with that first-day-in-the-Oval-Office symbol that things were truly going to be different: Obama’s order to close Guantanamo. That, of course, remains a work in progress (despite regular reassurances of light glimmering at the end of what has become a very long tunnel).
In fact, taking the president’s record as a whole, noting that on his watch occasional U.S. drone strikes have become routine, the Nobel Committee might want to consider revoking its Peace Prize.
Nor should we expect much in the time that Obama has remaining. Perhaps there is a deal with Iran waiting in the wings (along with the depth charge of ever-fiercer congressionally mandated sanctions), but signs of intellectual exhaustion are distinctly in evidence.
“Where there is no vision,” the Hebrew Bible tells us, “the people perish.” There’s no use pretending: if there’s one thing the Obama administration most definitely has not got and has never had, it’s a foreign policy vision.
In Search of Truly Wise (White) Men — Only Those 84 or Older Need Apply
All of this evokes a sense of unease, even consternation bordering on panic, in circles where members of the foreign policy elite congregate. Absent visionary leadership in Washington, they have persuaded themselves, we’re all going down. So the world’s sole superpower and self-anointed global leader needs to get game — and fast.
Leslie Gelb, former president of the Council on Foreign Relations, recently weighed in with a proposal for fixing the problem: clean house. Obama has surrounded himself with fumbling incompetents, Gelb charges. Get rid of them and bring in the visionaries.
Writing at the Daily Beast, Gelb urges the president to fire his entire national security team and replace them with “strong and strategic people of proven foreign policy experience.” Translation: the sort of people who sip sherry and nibble on brie in the august precincts of the Council of Foreign Relations. In addition to offering his own slate of nominees, including several veterans of the storied George W. Bush administration, Gelb suggests that Obama consult regularly with Henry Kissinger, Brent Scowcroft, Zbigniew Brzezinski, and James Baker. These distinguished war-horses range in age from 84 to 91. By implication, only white males born prior to World War II are eligible for induction into the ranks of the Truly Wise Men.
Anyway, Gelb emphasizes, Obama needs to get on with it. With the planet awash in challenges that “imperil our very survival,” there is simply no time to waste.
At best, Gelb’s got it half right. When it comes to foreign policy, this president has indeed demonstrated a knack for surrounding himself with lackluster lieutenants. That statement applies equally to national security adviser Susan Rice (and her predecessor), to Secretary of State Kerry (and his predecessor), and to outgoing Pentagon chief Chuck Hagel. Ashton Carter, the technocrat slated to replace Hagel as defense secretary, comes from the same mold.
They are all “seasoned” – in Washington, a euphemism for bland, conventional, and utterly unimaginative — charter members of the Rogers-Christopher school of American statecraft. (That may require some unpacking, so pretend you’re on Jeopardy. Alex Trebek: “Two eminently forgettable and completely forgotten twentieth-century secretaries of state.” You, hitting the buzzer: “Who were William Rogers and Warren Christopher?” “Correct!”)
Members of Obama’s national security team worked long and hard to get where they are. Yet along the way — perhaps from absorbing too many position papers, PowerPoint briefings, and platitudes about “American global leadership” — they lost whatever creative spark once endowed them with the appearance of talent and promise. Ambition, unquestioned patriotism, and a capacity for putting in endless hours (and enduring endless travel) — all these remain. But a serious conception of where the world is heading and what that implies for basic U.S. policy? Individually and collectively, they are without a clue.
I submit that maybe that’s okay, that plodding mediocrity can be a boon if, as at present, the alternatives on offer look even worse.
A Hug for Obama
You want vision? Obama’s predecessor surrounded himself with visionaries. Dick Cheney, Condoleezza Rice, Donald Rumsfeld, and Paul Wolfowitz, products of the Cold War one and all, certainly fancied themselves large-bore strategic thinkers. Busily positioning the United States to run (just another “i” and you have “ruin”) the world, they were blindsided by 9/11. Unembarrassed and unchastened by this disaster, they initiated a series of morally dubious, strategically boneheaded moves that were either (take your pick) going to spread freedom and democracy or position the United States to exercise permanent dominion. The ensuing Global War on Terror did neither, of course, while adding trillions to the national debt and helping fracture great expanses of the planet. Obama is still, however ineffectually, trying to clean up the mess they created.
If that’s what handing the keys to big thinkers gets you, give me Susan Rice any day. Although Obama’s “don’t do stupid shit” may never rank with Washington’s Farewell Address or the Monroe Doctrine in the history books, George W. Bush might have profited from having some comparable axiom taped to his laptop.
Big ideas have their place — indeed, are essential — when the issues at hand are clearly defined. The Fall of France in 1940 was one such moment, which President Franklin D. Roosevelt recognized. So too, arguably, was the period immediately after World War II. The defeat of Nazi Germany and Imperial Japan had left a dangerous power vacuum in both Europe and the Pacific to which George Marshall, Dean Acheson, and their compatriots forged a necessary response. Perhaps the period 1968-1969 falls into that same category, the debacle of Vietnam requiring a major adjustment in U.S. Cold War strategy. This Richard Nixon and Henry Kissinger undertook with their opening to China.
Yet despite the overwrought claims of Gelb (and others) that America’s very survival is today at risk, the present historical moment lacks comparable clarity. Ours is not a time when we face a single overarching threat. Instead, on several different fronts, worrisome developments are brewing. Environmental degradation, the rise of China and other emerging powers, the spread of radical Islam, the precarious state of the global economy, vulnerabilities that are an inevitable byproduct of our pursuit of a cyber-utopia: all of these bear very careful watching. Each one today should entail a defensive response, the United States protecting itself (and its allies) against worst-case outcomes. But none of these at the present moment justifies embarking upon a let-out-all-the-stops offensive. Chasing after one problem would necessarily divert attention from the rest.
The immediate future remains too opaque to say with certainty which threat will turn out to pose the greatest danger, whether in the next year or the next decade — and which might even end up not being a threat at all but an unexpected opportunity. Conditions are not ripe for boldness. The abiding imperative of the moment is to discern, which requires careful observation and patience. In short, forget about strategy.
And there’s a further matter. Correct discernment assumes a proper vantage point. What you see depends on where you sit and which way you’re facing. Those who inhabit the upper ranks of the Obama administration (and those whom Leslie Gelb offers as replacements) sit somewhere back in the twentieth century, their worldview shaped by memories of Munich and Yalta, Korea and Vietnam, the Cuban Missile Crisis and the Berlin Wall, none of which retain more than tangential relevance to the present day.
You want vision? That will require a new crop of visionaries. Instead of sitting down with ancients like Kissinger, Scowcroft, Brzezinski, or Baker, this president (or his successor) would be better served to pick the brain of the army captain back from multiple combat tours in Iraq and Afghanistan, the moral theologian specializing in inter-religious dialog, the Peace Corps volunteer who spent the last two years in West Africa, and the Silicon Valley entrepreneur best able to spell out the political implications of the next big thing.
In short, a post-twentieth century vision requires a post-twentieth century generation, able to free itself from old shibboleths to which Leslie Gelb and most of official Washington today remain stubbornly dedicated. That generation waits in the wings and after another presidential election or two may indeed wield some influence. We should hope so. In the meantime, we should bide our time, amending the words of the prophet to something like: “Where there is no vision, the people muddle along and await salvation.”
So as Obama and his team muddle toward their finish line, their achievements negligible, we might even express a modicum of gratitude. When they depart the scene, we will forget the lot of them. Yet at least they managed to steer clear of truly epic disasters. When muddling was the best Washington had on offer, they delivered. They may even deserve a hug.
Andrew J. Bacevich, a TomDispatch regular, is writing a military history of America’s War for the Greater Middle East. His most recent book is Breach of Trust: How Americans Failed Their Soldiers and Their Country.
Copyright 2015 Andrew Bacevich