Amid the distractions of the holiday season, the New York Times revealed that the Obama administration is considering a Pentagon proposal to create a “new” and “enduring” system of military bases around the Middle East. Though this is being presented as a response to the rise of the Islamic State and other militant groups, there’s remarkably little that’s new about the Pentagon plan. For more than 36 years, the U.S. military has been building an unprecedented constellation of bases that stretches from Southern Europe and the Middle East to Africa and Southwest Asia.
The record of these bases is disastrous. They have cost tens of billions of dollars and provided support for a long list of undemocratic host regimes, including Saudi Arabia, Bahrain, Qatar, and Djibouti. They have enabled a series of U.S. wars and military interventions, including the 2003 invasion of Iraq, which have helped make the Greater Middle East a cauldron of sectarian-tinged power struggles, failed states, and humanitarian catastrophe. And the bases have fueled radicalism, anti-Americanism, and the growth of the very terrorist organizations now targeted by the supposedly new strategy.
If there is much of anything new about the plan, it’s the public acknowledgement of what some (including TomDispatch) have long suspected: despite years of denials about the existence of any “permanent bases” in the Greater Middle East or desire for the same, the military intends to maintain a collection of bases in the region for decades, if not generations, to come.
Thirty-Six Years of Base Building
According to the Times, the Pentagon wants to build up a string of bases, the largest of which would permanently host 500 to 5,000 U.S. personnel. The system would include four “hubs” — existing bases in Afghanistan, Iraq, Djibouti, and Spain — and smaller “spokes” in locations like Niger and Cameroon. These bases would, in turn, feature Special Operations forces ready to move into action quickly for what Secretary of Defense Ashton Carter has called “unilateral crisis response” anywhere in the Greater Middle East or Africa. According to unnamed Pentagon officials quoted by the Times, this proposed expansion would cost a mere pittance, just “several million dollars a year.”
Far from new, however, this strategy predates both the Islamic State and al-Qaeda. In fact, it goes back to 1980 and the Carter Doctrine. That was the moment when President Jimmy Carter first asserted that the United States would secure Middle Eastern oil and natural gas by “any means necessary, including military force.” Designed to prevent Soviet intervention in the Persian Gulf, the Pentagon build-up under Presidents Carter and Ronald Reagan included the creation of installations in Egypt, Oman, Saudi Arabia, and on the Indian Ocean island of Diego Garcia. During the first Gulf War of 1991, the Pentagon deployed hundreds of thousands of troops to Saudi Arabia and neighboring countries. After that war, despite the disappearance of the Soviet Union, the U.S. military didn’t go home. Thousands of U.S. troops and a significantly expanded base infrastructure remained in Saudi Arabia and Kuwait. Bahrain became home to the Navy’s Fifth Fleet. The Pentagon built large air installations in Qatar and expanded operations in the United Arab Emirates (UAE) and Oman.
Following the 2001 invasion of Afghanistan and the 2003 invasion of Iraq, the Pentagon spent tens of billions of dollars building and expanding yet more bases. At the height of those U.S.-led wars, there were more than 1,000 installations, large and small, in Afghanistan and Iraq alone. Despite the closing of most U.S. bases in the two countries, the Pentagon still has access to at least nine major bases in Afghanistan through 2024. After leaving Iraq in 2011, the military returned in 2014 to reoccupy at least six installations. Across the Persian Gulf today, there are still U.S. bases in every country save Iran and Yemen. Even in Saudi Arabia, where widespread anger at the U.S. presence led to an official withdrawal in 2003, there are still small U.S. military contingents and a secret drone base. There are secret bases in Israel, four installations in Egypt, and at least one in Jordan near the Iraqi border. Turkey hosts 17 bases, according to the Pentagon. In the wider region, the military has operated drones from at least five bases in Pakistan in recent years and there are nine new installations in Bulgaria and Romania, along with a Clinton administration-era base still operating in Kosovo.
In Africa, Djibouti’s Camp Lemonnier, just miles across the Red Sea from the Arabian Peninsula, has expanded dramatically since U.S. forces moved in after 2001. There are now upwards of 4,000 troops on the 600-acre base. Elsewhere, the military has quietly built a collection of small bases and sites for drones, surveillance flights, and Special Operations forces from Ethiopia and Kenya to Burkina Faso and Senegal. Large bases in Spain and Italy support what are now thousands of U.S. troops regularly deploying to Africa.
A Disastrous Record
After 36 years, the results of this vast base build-up have been, to put it mildly, counterproductive. As Saudi Arabia illustrates, U.S. bases have often helped generate the radical militancy that they are now being designed to defeat. The presence of U.S. bases and troops in Muslim holy lands was, in fact, a major recruiting tool for al-Qaeda and part of Osama bin Laden’s professed motivation for the 9/11 attacks.
Across the Middle East, there’s a correlation between a U.S. basing presence and al-Qaeda’s recruitment success. According to former West Point professor Bradley Bowman, U.S. bases and troops in the Middle East have been a “major catalyst for anti-Americanism and radicalization” since a suicide bomber killed 241 Marines in Lebanon in 1983. In Africa, a growing U.S. base and troop presence has “backfired,” serving as a boon for insurgents, according to research published by the Army’s Military Review and the Oxford Research Group. A recent U.N. report suggests that the U.S. air campaign against IS has led foreign militants to join the movement on “an unprecedented scale.”
Part of the anti-American anger that such bases stoke comes from the support they offer to repressive, undemocratic hosts. For example, the Obama administration offered only tepid criticism of the Bahraini government, crucial for U.S. naval basing, in 2011 when its leaders violently cracked down on pro-democracy protesters with the help of troops from Saudi Arabia and the UAE. Elsewhere, U.S. bases offer legitimacy to hosts the Economist Democracy Index considers “authoritarian regimes,” effectively helping to block the spread of democracy in countries including Cameroon, Central African Republic, Chad, Djibouti, Egypt, Ethiopia, Jordan, Kuwait, Oman, Qatar, Saudi Arabia, and the UAE.
The Pentagon’s basing strategy has not only been counterproductive in encouraging people to take up arms against the United States and its allies, it has also been extraordinarily expensive. Military bases across the Greater Middle East cost the United States tens of billions of dollars every year, as part of an estimated $150 billion in annual spending to maintain bases and troops abroad. Camp Lemonnier in Djibouti alone has an annual rent of $70 million and at least $1.4 billion in ongoing expansion costs. With the Pentagon now proposing an enlarged basing structure of hubs and spokes from Burkina Faso to Afghanistan, cost estimates reported in the New York Times in the “low millions” are laughable, if not intentionally misleading. (One hopes the Government Accountability Office is already investigating the true costs.)
The only plausible explanation for such low-ball figures is that officials are taking for granted — and thus excluding from their estimates — the continuation of present wartime funding levels for those bases. In reality, further entrenching the Pentagon’s base infrastructure in the region will commit U.S. taxpayers to billions more in annual construction, maintenance, and personnel costs (while civilian infrastructure in the U.S. continues to be underfunded and neglected).
The idea that the military needs any additional money to bring, as the Times put it, “an ad hoc series of existing bases into one coherent system” should shock American taxpayers. After all, the Pentagon has already spent so many billions on them. If military planners haven’t linked these bases into a coherent system by now, what exactly have they been doing?
In fact, the Pentagon is undoubtedly resorting to an all-too-familiar funding strategy — using low-ball cost estimates to secure more cash from Congress on a commit-now, pay-the-true-costs-later basis. Experience shows that once the military gets such new budget lines, costs and bases tend to expand, often quite dramatically. Especially in places like Africa that have had a relatively small U.S. presence until now, the Pentagon plan is a template for unchecked growth. As Nick Turse has shown at TomDispatch, the military has already built up “more than 60 outposts and access points…. in at least 34 countries” across the continent while insisting for years that it had only one base in Africa, Camp Lemonnier in Djibouti. With Congress finally passing the 2016 federal budget, including billions in increased military spending, the Pentagon’s base plan looks like an opening gambit in a bid to get even more money in fiscal year 2017.
Above all, the base structure the Pentagon has built since 1980 has enabled military interventions and wars of choice in 13 countries in the Greater Middle East. In the absence of a superpower competitor, these bases made each military action — worst of all the disastrous invasion of Iraq — all too easy to contemplate, launch, and carry out. Today, it seems beyond irony that the target of the Pentagon’s “new” base strategy is the Islamic State, whose very existence and growth we owe to the Iraq War and the chaos it created. If the White House and Congress approve the Pentagon’s plan and the military succeeds in further entrenching and expanding its bases in the region, we need only ask: What violence will this next round of base expansion bring?
Thirty-six years into the U.S. base build-up in the Greater Middle East, military force has failed as a strategy for controlling the region, no less defeating terrorist organizations. Sadly, this infrastructure of war has been in place for so long and is now so taken for granted that most Americans seldom think about it. Members of Congress rarely question the usefulness of the bases or the billions they have appropriated to build and maintain them. Journalists, too, almost never report on the subject — except when news outlets publish material strategically leaked by the Pentagon, as appears to be the case with the “new” base plan highlighted by the New York Times.
Expanding the base infrastructure in the Greater Middle East will only perpetuate a militarized foreign policy premised on assumptions about the efficacy of war that should have been discredited long ago. Investing in “enduring” bases rather than diplomatic, political, and humanitarian efforts to reduce conflict across the region is likely to do little more than ensure enduring war.
Copyright David Vine 2016
Doubling Down on a Failed Strategy
With the U.S. military having withdrawn many of its forces from Iraq and Afghanistan, most Americans would be forgiven for being unaware that hundreds of U.S. bases and hundreds of thousands of U.S. troops still encircle the globe. Although few know it, the United States garrisons the planet unlike any country in history, and the evidence is on view from Honduras to Oman, Japan to Germany, Singapore to Djibouti.
Like most Americans, for most of my life, I rarely thought about military bases. Scholar and former CIA consultant Chalmers Johnson described me well when he wrote in 2004, “As distinct from other peoples, most Americans do not recognize — or do not want to recognize — that the United States dominates the world through its military power. Due to government secrecy, our citizens are often ignorant of the fact that our garrisons encircle the planet.”
To the extent that Americans think about these bases at all, we generally assume they’re essential to national security and global peace. Our leaders have claimed as much since most of them were established during World War II and the early days of the Cold War. As a result, we consider the situation normal and accept that U.S. military installations exist in staggering numbers in other countries, on other peoples’ land. On the other hand, the idea that there would be foreign bases on U.S. soil is unthinkable.
While there are no freestanding foreign bases permanently located in the United States, there are now around 800 U.S. bases in foreign countries. Seventy years after World War II and 62 years after the Korean War, there are still 174 U.S. “base sites” in Germany, 113 in Japan, and 83 in South Korea, according to the Pentagon. Hundreds more dot the planet in around 80 countries, including Aruba and Australia, Bahrain and Bulgaria, Colombia, Kenya, and Qatar, among many other places. Although few Americans realize it, the United States likely has more bases in foreign lands than any other people, nation, or empire in history.
Oddly enough, however, the mainstream media rarely report or comment on the issue. For years, during debates over the closure of the prison at the base in Guantánamo Bay, Cuba, nary a pundit or politician wondered why the United States has a base on Cuban territory in the first place or questioned whether we should have one there at all. Rarely does anyone ask if we need hundreds of bases overseas or if, at an estimated annual cost of perhaps $156 billion or more, the U.S. can afford them. Rarely does anyone wonder how we would feel if China, Russia, or Iran built even a single base anywhere near our borders, let alone in the United States.
“Without grasping the dimensions of this globe-girdling Baseworld,” Chalmers Johnson insisted, “one can’t begin to understand the size and nature of our imperial aspirations or the degree to which a new kind of militarism is undermining our constitutional order.” Alarmed and inspired by his work and aware that relatively few have heeded his warnings, I’ve spent years trying to track and understand what he called our “empire of bases.” While logic might seem to suggest that these bases make us safer, I’ve come to the opposite conclusion: in a range of ways our overseas bases have made us all less secure, harming everyone from U.S. military personnel and their families to locals living near the bases to those of us whose taxes pay for the way our government garrisons the globe.
We are now, as we’ve been for the last seven decades, a Base Nation that extends around the world, and it’s long past time that we faced that fact.
The Base Nation’s Scale
Our 800 bases outside the 50 states and Washington, D.C., come in all sizes and shapes. Some are city-sized “Little Americas” — places like Ramstein Air Base in Germany, Kadena Air Base in Okinawa, and the little known Navy and Air Force base on Diego Garcia in the Indian Ocean. These support a remarkable infrastructure, including schools, hospitals, power plants, housing complexes, and an array of amenities often referred to as “Burger Kings and bowling alleys.” Among the smallest U.S. installations globally are “lily pad” bases (also known as “cooperative security locations”), which tend to house drones, surveillance aircraft, or pre-positioned weaponry and supplies. These are increasingly found in parts of Africa and Eastern Europe that had previously lacked much of a U.S. military presence.
Other facilities scattered across the planet include ports and airfields, repair complexes, training areas, nuclear weapons installations, missile testing sites, arsenals, warehouses, barracks, military schools, listening and communications posts, and a growing array of drone bases. Military hospitals and prisons, rehab facilities, CIA paramilitary bases, and intelligence facilities (including former CIA “black site” prisons) must also be considered part of our Base Nation because of their military functions. Even U.S. military resorts and recreation areas in places like the Bavarian Alps and Seoul, South Korea, are bases of a kind. Worldwide, the military runs more than 170 golf courses.
The Pentagon’s overseas presence is actually even larger. There are U.S. troops or other military personnel in about 160 foreign countries and territories, including small numbers of marines guarding embassies and larger deployments of trainers and advisors like the roughly 3,500 now working with the Iraqi Army. And don’t forget the Navy’s 11 aircraft carriers. Each should be considered a kind of floating base, or as the Navy tellingly refers to them, “four and a half acres of sovereign U.S. territory.” Finally, above the seas, one finds a growing military presence in space.
The United States isn’t, however, the only country to control military bases outside its territory. Great Britain still has about seven bases and France five in former colonies. Russia has around eight in former Soviet republics. For the first time since World War II, Japan’s “Self-Defense Forces” have a foreign base in Djibouti in the Horn of Africa, alongside U.S. and French bases there. South Korea, India, Chile, Turkey, and Israel each reportedly have at least one foreign base. There are also reports that China may be seeking its first base overseas. In total, these countries probably have about 30 installations abroad, meaning that the United States has approximately 95% of the world’s foreign bases.
Although the United States has had bases in foreign lands since shortly after it gained its independence, nothing like today’s massive global deployment of military force was imaginable until World War II. In 1940, with the flash of a pen, President Franklin D. Roosevelt signed a “destroyers-for-bases” deal with Great Britain that instantly gave the United States 99-year leases to installations in British colonies worldwide. Base acquisition and construction accelerated rapidly once the country entered the war. By 1945, the U.S. military was building base facilities at a rate of 112 a month. By war’s end, the global total topped 2,000 sites. In only five years, the United States had developed history’s first truly global network of bases, vastly overshadowing that of the British Empire upon which “the sun never set.”
After the war, the military returned about half the installations but maintained what historian George Stambuk termed a “permanent institution” of bases abroad. Their number spiked during the wars in Korea and Vietnam, declining after each of them. By the time the Soviet Union imploded in 1991, there were about 1,600 U.S. bases abroad, with some 300,000 U.S. troops stationed on those in Europe alone.
Although the military vacated about 60% of its foreign garrisons in the 1990s, the overall base infrastructure stayed relatively intact. Despite additional base closures in Europe and to a lesser extent in East Asia over the last decade and despite the absence of a superpower adversary, nearly 250,000 troops are still deployed on installations worldwide. Although there are about half as many bases as there were in 1989, the number of countries with U.S. bases has roughly doubled from 40 to 80. In recent years, President Obama’s “Pacific pivot” has meant billions of dollars in profligate spending in Asia, where the military already had hundreds of bases and tens of thousands of troops. Billions more have been sunk into building an unparalleled permanent base infrastructure in every Persian Gulf country save Iran. In Europe, the Pentagon has been spending billions more erecting expensive new bases at the same time that it has been closing others.
Since the start of the Cold War, the idea that our country should have a large collection of bases and hundreds of thousands of troops permanently stationed overseas has remained a quasi-religious dictum of foreign and national security policy. The nearly 70-year-old idea underlying this deeply held belief is known as the “forward strategy.” Originally, the strategy held that the United States should maintain large concentrations of military forces and bases as close as possible to the Soviet Union to hem in and “contain” its supposed urge to expand.
But the disappearance of another superpower to contain made remarkably little difference to the forward strategy. Chalmers Johnson first grew concerned about our empire of bases when he recognized that the structure of the “American Raj” remained largely unchanged despite the collapse of the supposed enemy.
Two decades after the Soviet Union’s demise, people across the political spectrum still unquestioningly assume that overseas bases and forward-deployed forces are essential to protect the country. George W. Bush’s administration was typical in insisting that bases abroad “maintained the peace” and were “symbols of… U.S. commitments to allies and friends.” The Obama administration has similarly declared that protecting the American people and international security “requires a global security posture.”
Support for the forward strategy has remained the consensus among politicians of both parties, national security experts, military officials, journalists, and almost everyone else in Washington’s power structure. Opposition of any sort to maintaining large numbers of overseas bases and troops has long been pilloried as peacenik idealism or the sort of isolationism that allowed Hitler to conquer Europe.
The Costs of Garrisoning the World
As Johnson showed us, there are many reasons to question the overseas base status quo. The most obvious one is economic. Garrisons overseas are very expensive. According to the RAND Corporation, even when host countries like Japan and Germany cover some of the costs, U.S. taxpayers still pay an annual average of $10,000 to $40,000 more per year to station a member of the military abroad than in the United States. The expense of transportation, the higher cost of living in some host countries, and the need to provide schools, hospitals, housing, and other support to family members of military personnel mean that the dollars add up quickly — especially with more than half a million troops, family members, and civilian employees on bases overseas at any time.
By my very conservative calculations, maintaining installations and troops overseas cost at least $85 billion in 2014 — more than the discretionary budget of every government agency except the Defense Department itself. If the U.S. presence in Afghanistan and Iraq is included, that bill reaches $156 billion or more.
While bases may be costly for taxpayers, they are extremely profitable for the country’sprivateers of twenty-first-century war like DynCorp International and former Halliburton subsidiary KBR. As Chalmers Johnson noted, “Our installations abroad bring profits to civilian industries,” which win billions in contracts annually to “build and maintain our far-flung outposts.”
Meanwhile, many of the communities hosting bases overseas never see the economic windfalls that U.S. and local leaders regularly promise. Some areas, especially in poor rural communities, have seen short-term economic booms touched off by base construction. In the long-term, however, most bases rarely create sustainable, healthy local economies. Compared with other forms of economic activity, they represent unproductive uses of land, employ relatively few people for the expanses occupied, and contribute little to local economic growth. Research has consistently shown that when bases finally close, the economic impact isgenerally limited and in some cases actually positive — that is, local communities can end up better off when they trade bases for housing, schools, shopping complexes, and other forms of economic development.
Meanwhile for the United States, investing taxpayer dollars in the construction and maintenance of overseas bases means forgoing investments in areas like education, transportation, housing, and healthcare, despite the fact that these industries are more of a boon to overall economic productivity and create more jobs compared to equivalent military spending. Think about what $85 billion per year would mean in terms of rebuilding the country’s crumbling civilian infrastructure.
The Human Toll
Beyond the financial costs are the human ones. The families of military personnel are among those who suffer from the spread of overseas bases given the strain of distant deployments, family separations, and frequent moves. Overseas bases also contribute to the shocking rates of sexual assaultin the military: an estimated 30% of servicewomen are victimized during their time in the military and a disproportionate number of these crimes happen at bases abroad. Outside the base gates, in places like South Korea, one often finds exploitative prostitution industries geared to U.S. military personnel.
Worldwide, bases have caused widespread environmental damage because of toxic leaks, accidents, and in some cases the deliberate dumping of hazardous materials. GI crime has long angered locals. In Okinawa and elsewhere, U.S. troops have repeatedly committed horrific acts of rape against local women. From Greenland to the tropical island of Diego Garcia, the military has displaced local peoples from their lands to build its bases.
In contrast to frequently invoked rhetoric about spreading democracy, the military has shown a preference for establishing bases in undemocratic and often despotic states like Qatar and Bahrain. In Iraq, Afghanistan, and Saudi Arabia, U.S. bases have created fertile breeding grounds for radicalism and anti-Americanism. The presence of bases near Muslim holy sites in Saudi Arabia was a major recruiting tool for al-Qaeda and part of Osama bin Laden’s professed motivation for the September 11, 2001, attacks.
Although this kind of perpetual turmoil is little noticed at home, bases abroad have all too often generate grievances, protest, and antagonistic relationships. Although few here recognize it, our bases are a major part of the image the United States presents to the world — and they often show us in an extremely unflattering light.
Creating a New Cold War, Base by Base
It is also not at all clear that bases enhance national security and global peace in any way. In the absence of a superpower enemy, the argument that bases many thousands of miles from U.S. shores are necessary to defend the United States — or even its allies — is a hard argument to make. On the contrary, the global collection of bases has generally enabled the launching of military interventions, drone strikes, and wars of choice that have resulted in repeated disasters, costing millions of lives and untold destruction from Vietnam to Iraq.
By making it easier to wage foreign wars, bases overseas have ensured that military action is an ever more attractive option — often the only imaginable option — for U.S. policymakers. As the anthropologist Catherine Lutz hassaid, when all you have in your foreign policy toolbox is a hammer, everything starts to look like a nail. Ultimately, bases abroad have frequently made war more likely rather than less.
Proponents of the long-outdated forward strategy will reply that overseas bases “deter” enemies and help keep the global peace. As supporters of the status quo, they have been proclaiming such security benefits as self-evident truths for decades. Few have provided anything of substance to support their claims. While there is some evidence that military forces can indeed deter imminent threats, little if any research suggests that overseas bases are an effective form of long-term deterrence. Studies by both the Bush administration and the RAND Corporation – not exactly left-wing peaceniks — indicate that advances in transportation technology have largely erased the advantage of stationing troops abroad. In the case of a legitimate defensive war or peacekeeping operation, the military could generally deploy troops just as quickly from domestic bases as from most bases abroad. Rapid sealift and airlift capabilities coupled with agreements allowing the use of bases in allied nations and, potentially, pre-positioned supplies are a dramatically less expensive and less inflammatory alternative to maintaining permanent bases overseas.
It is also questionable whether such bases actually increase the security of host nations. The presence of U.S. bases can turn a country into an explicit target for foreign powers or militants — just as U.S. installations have endangered Americans overseas.
Similarly, rather than stabilizing dangerous regions, foreign bases frequently heighten military tensions and discourage diplomatic solutions to conflicts. Placing U.S. bases near the borders of countries like China, Russia, and Iran, for example, increases threats to their security and encourages them to respond by boosting their own military spending and activity. Imagine how U.S. leaders would respond if China were to build even a single small base in Mexico, Canada, or the Caribbean. Notably, the most dangerous moment during the Cold War — the 1962 Cuban missile crisis — revolved around the construction of Soviet nuclear missile facilities in Cuba, roughly 90 miles from the U.S. border.
The creation and maintenance of so many U.S. bases overseas likewise encourages other nations to build their own foreign bases in what could rapidly become an escalating “base race.” Bases near the borders of China and Russia, in particular, threaten to fuel new cold wars. U.S. officials may insist that building yet more bases in East Asia is a defensive act meant to ensure peace in the Pacific, but tell that to the Chinese. That country’s leaders are undoubtedly not “reassured” by the creation of yet more bases encircling their borders. Contrary to the claim that such installations increase global security, they tend to ratchet up regional tensions, increasing the risk of future military confrontation.
In this way, just as the war on terror has become a global conflict that only seems to spread terror, the creation of new U.S. bases to protect against imagined future Chinese or Russian threats runs the risk of becoming a self-fulfilling prophecy. These bases may ultimately help create the very threat they are supposedly designed to protect against. In other words, far from making the world a safer place, U.S. bases can actually make war more likely and the country less secure.
Behind the Wire
In his farewell address to the nation upon leaving the White House in 1961, President Dwight D. Eisenhower famously warned the nation about the insidious economic, political, and even spiritual effects of what he dubbed “the military-industrial-congressional complex,” the vast interlocking national security state born out of World War II. As Chalmers Johnson’s work reminded us in this new century, our 70-year-old collection of bases is evidence of how, despite Ike’s warning, the United States has entered a permanent state of war with an economy, a government, and a global system of power enmeshed in preparations for future conflicts.
America’s overseas bases offer a window onto our military’s impact in the world and in our own daily lives. The history of these hulking “Little Americas” of concrete, fast food, and weaponry provides a living chronicle of the United States in the post-World War II era. In a certain sense, in these last seven decades, whether we realize it or not, we’ve all come to live “behind the wire,” as military personnel like to say.
We may think such bases have made us safer. In reality, they’ve helped lock us inside a permanently militarized society that has made all of us — everyone on this planet — less secure, damaging lives at home and abroad.
David Vine, a TomDispatch regular, is associate professor of anthropology at American University in Washington, D.C. His book, Base Nation: How U.S. Military Bases Abroad Harm America and the World, has just been published as part of the American Empire Project (Metropolitan Books). He has written for the New York Times, the Washington Post, the Guardian, and Mother Jones, among other publications. For more information and additional articles, visit www.basenation.us and www.davidvine.net.
Copyright 2015 David Vine
Garrisoning the Globe
With the launch of a new U.S.-led war in Iraq and Syria against the Islamic State (IS), the United States has engaged in aggressive military action in at least 13 countries in the Greater Middle East since 1980. In that time, every American president has invaded, occupied, bombed, or gone to war in at least one country in the region. The total number of invasions, occupations, bombing operations, drone assassination campaigns, and cruise missile attacks easily runs into the dozens.
As in prior military operations in the Greater Middle East, U.S. forces fighting IS have been aided by access to and the use of an unprecedented collection of military bases. They occupy a region sitting atop the world’s largest concentration of oil and natural gas reserves and has long been considered the most geopolitically important place on the planet. Indeed, since 1980, the U.S. military has gradually garrisoned the Greater Middle East in a fashion only rivaled by the Cold War garrisoning of Western Europe or, in terms of concentration, by the bases built to wage past wars in Korea and Vietnam.
In the Persian Gulf alone, the U.S. has major bases in every country save Iran. There is an increasingly important, increasingly large base in Djibouti, just miles across the Red Sea from the Arabian Peninsula. There are bases in Pakistan on one end of the region and in the Balkans on the other, as well as on the strategically located Indian Ocean islands of Diego Garcia and the Seychelles. In Afghanistan and Iraq, there were once as many as 800 and 505 bases, respectively. Recently, the Obama administration inked an agreement with new Afghan President Ashraf Ghani to maintain around 10,000 troops and at least nine major bases in his country beyond the official end of combat operations later this year. U.S. forces, which never fully departed Iraq after 2011, are now returning to a growing number of bases there in ever larger numbers.
In short, there is almost no way to overemphasize how thoroughly the U.S. military now covers the region with bases and troops. This infrastructure of war has been in place for so long and is so taken for granted that Americans rarely think about it and journalists almost never report on the subject. Members of Congress spend billions of dollars on base construction and maintenance every year in the region, but ask few questions about where the money is going, why there are so many bases, and what role they really serve. By one estimate, the United States has spent $10 trillion protecting Persian Gulf oil supplies over the past four decades.
Approaching its 35th anniversary, the strategy of maintaining such a structure of garrisons, troops, planes, and ships in the Middle East has been one of the great disasters in the history of American foreign policy. The rapid disappearance of debate about our newest, possibly illegal war should remind us of just how easy this huge infrastructure of bases has made it for anyone in the Oval Office to launch a war that seems guaranteed, like its predecessors, to set off new cycles of blowback and yet more war.
On their own, the existence of these bases has helped generate radicalism and anti-American sentiment. As was famously the case with Osama bin Laden and U.S. troops in Saudi Arabia, bases have fueled militancy, as well as attacks on the United States and its citizens. They have cost taxpayers billions of dollars, even though they are not, in fact, necessary to ensure the free flow of oil globally. They have diverted tax dollars from the possible development of alternative energy sources and meeting other critical domestic needs. And they have supported dictators and repressive, undemocratic regimes, helping to block the spread of democracy in a region long controlled by colonial rulers and autocrats.
After 35 years of base-building in the region, it’s long past time to look carefully at the effects Washington’s garrisoning of the Greater Middle East has had on the region, the U.S., and the world.
“Vast Oil Reserves”
While the Middle Eastern base buildup began in earnest in 1980, Washington had long attempted to use military force to control this swath of resource-rich Eurasia and, with it, the global economy. Since World War II, as the late Chalmers Johnson, an expert on U.S. basing strategy, explained back in 2004, “the United States has been inexorably acquiring permanent military enclaves whose sole purpose appears to be the domination of one of the most strategically important areas of the world.”
In 1945, after Germany’s defeat, the secretaries of War, State, and the Navy tellingly pushed for the completion of a partially built base in Dharan, Saudi Arabia, despite the military’s determination that it was unnecessary for the war against Japan. “Immediate construction of this [air] field,” they argued, “would be a strong showing of American interest in Saudi Arabia and thus tend to strengthen the political integrity of that country where vast oil reserves now are in American hands.”
By 1949, the Pentagon had established a small, permanent Middle East naval force (MIDEASTFOR) in Bahrain. In the early 1960s, President John F. Kennedy’s administration began the first buildup of naval forces in the Indian Ocean just off the Persian Gulf. Within a decade, the Navy had created the foundations for what would become the first major U.S. base in the region — on the British-controlled island of Diego Garcia.
In these early Cold War years, though, Washington generally sought to increase its influence in the Middle East by backing and arming regional powers like the Kingdom of Saudi Arabia, Iran under the Shah, and Israel. However, within months of the Soviet Union’s 1979 invasion of Afghanistan and Iran’s 1979 revolution overthrowing the Shah, this relatively hands-off approach was no more.
In January 1980, President Jimmy Carter announced a fateful transformation of U.S. policy. It would become known as the Carter Doctrine. In his State of the Union address, he warned of the potential loss of a region “containing more than two-thirds of the world’s exportable oil” and “now threatened by Soviet troops” in Afghanistan who posed “a grave threat to the free movement of Middle East oil.”
Carter warned that “an attempt by any outside force to gain control of the Persian Gulf region will be regarded as an assault on the vital interests of the United States of America.” And he added pointedly, “Such an assault will be repelled by any means necessary, including military force.”
With these words, Carter launched one of the greatest base construction efforts in history. He and his successor Ronald Reagan presided over the expansion of bases in Egypt, Oman, Saudi Arabia, and other countries in the region to host a “Rapid Deployment Force,” which was to stand permanent guard over Middle Eastern petroleum supplies. The air and naval base on Diego Garcia, in particular, was expanded at a quicker rate than any base since the war in Vietnam. By 1986, more than $500 million had been invested. Before long, the total ran into the billions.
Soon enough, that Rapid Deployment Force grew into the U.S. Central Command, which has now overseen three wars in Iraq (1991-2003, 2003-2011, 2014-); the war in Afghanistan and Pakistan (2001-); intervention in Lebanon (1982-1984); a series of smaller-scale attacks on Libya (1981, 1986, 1989, 2011); Afghanistan (1998) and Sudan (1998); and the "tanker war" with Iran (1987-1988), which led to the accidental downing of an Iranian civilian airliner, killing 290 passengers. Meanwhile, in Afghanistan during the 1980s, the CIA helped fund and orchestrate a major covert war against the Soviet Union by backing Osama Bin Laden and other extremist mujahidin. The command has also played a role in the drone war in Yemen (2002-) and both overt and covert warfare in Somalia (1992-1994, 2001-).
During and after the first Gulf War of 1991, the Pentagon dramatically expanded its presence in the region. Hundreds of thousands of troops were deployed to Saudi Arabia in preparation for the war against Iraqi autocrat and former ally Saddam Hussein. In that war’s aftermath, thousands of troops and a significantly expanded base infrastructure were left in Saudi Arabia and Kuwait. Elsewhere in the Gulf, the military expanded its naval presence at a former British base in Bahrain, housing its Fifth Fleet there. Major air power installations were built in Qatar, and U.S. operations were expanded in Kuwait, the United Arab Emirates, and Oman.
The invasion of Afghanistan in 2001 and of Iraq in 2003, and the subsequent occupations of both countries, led to a more dramatic expansion of bases in the region. By the height of the wars, there were well over 1,000 U.S. checkpoints, outposts, and major bases in the two countries alone. The military also built new bases in Kyrgyzstan and Uzbekistan (since closed), explored the possibility of doing so in Tajikistan and Kazakhstan, and, at the very least, continues to use several Central Asian countries as logistical pipelines to supply troops in Afghanistan and orchestrate the current partial withdrawal.
While the Obama administration failed to keep 58 “enduring” bases in Iraq after the 2011 U.S. withdrawal, it has signed an agreement with Afghanistan permitting U.S. troops to stay in the country until 2024 and maintain access to Bagram Air Base and at least eight more major installations.
An Infrastructure for War
Even without a large permanent infrastructure of bases in Iraq, the U.S. military has had plenty of options when it comes to waging its new war against IS. In that country alone, a significant U.S. presence remained after the 2011 withdrawal in the form of base-like State Department installations, as well as the largest embassy on the planet in Baghdad, and a large contingent of private military contractors. Since the start of the new war, at least 1,600 troops have returned and are operating from a Joint Operations Center in Baghdad and a base in Iraqi Kurdistan’s capital, Erbil. Last week, the White House announced that it would request $5.6 billion from Congress to send an additional 1,500 advisers and other personnel to at least two new bases in Baghdad and Anbar Province. Special operations and other forces are almost certainly operating from yet more undisclosed locations.
At least as important are major installations like the Combined Air Operations Center at Qatar’s al-Udeid Air Base. Before 2003, the Central Command’s air operations center for the entire Middle East was in Saudi Arabia. That year, the Pentagon moved the center to Qatar and officially withdrew combat forces from Saudi Arabia. That was in response to the 1996 bombing of the military’s Khobar Towers complex in the kingdom, other al-Qaeda attacks in the region, and mounting anger exploited by al-Qaeda over the presence of non-Muslim troops in the Muslim holy land. Al-Udeid now hosts a 15,000-foot runway, large munitions stocks, and around 9,000 troops and contractors who are coordinating much of the new war in Iraq and Syria.
Kuwait has been an equally important hub for Washington’s operations since U.S. troops occupied the country during the first Gulf War. Kuwait served as the main staging area and logistical center for ground troops in the 2003 invasion and occupation of Iraq. There are still an estimated 15,000 troops in Kuwait, and the U.S. military is reportedly bombing Islamic State positions using aircraft from Kuwait’s Ali al-Salem Air Base.
As a transparently promotional article in the Washington Post confirmed this week, al-Dhafra Air Base in the United Arab Emirates has launched more attack aircraft in the present bombing campaign than any other base in the region. That country hosts about 3,500 troops at al-Dhafra alone, as well as the Navy's busiest overseas port. B-1, B-2, and B-52 long-range bombers stationed on Diego Garcia helped launch both Gulf Wars and the war in Afghanistan. That island base is likely playing a role in the new war as well. Near the Iraqi border, around 1,000 U.S. troops and F-16 fighter jets are operating from at least one Jordanian base. According to the Pentagon’s latest count, the U.S. military has 17 bases in Turkey. While the Turkish government has placed restrictions on their use, at the very least some are being used to launch surveillance drones over Syria and Iraq. Up to seven bases in Oman may also be in use.
Bahrain is now the headquarters for the Navy’s entire Middle Eastern operations, including the Fifth Fleet, generally assigned to ensure the free flow of oil and other resources though the Persian Gulf and surrounding waterways. There is always at least one aircraft carrier strike group — effectively, a massive floating base — in the Persian Gulf. At the moment, the U.S.S. Carl Vinson is stationed there, a critical launch pad for the air campaign against the Islamic State. Other naval vessels operating in the Gulf and the Red Sea have launched cruise missiles into Iraq and Syria. The Navy even has access to an “afloat forward-staging base” that serves as a “lilypad” base for helicopters and patrol craft in the region.
In Israel, there are as many as six secret U.S. bases that can be used to preposition weaponry and equipment for quick use anywhere in the area. There’s also a “de facto U.S. base” for the Navy’s Mediterranean fleet. And it’s suspected that there are two other secretive sites in use as well. In Egypt, U.S. troops have maintained at least two installations and occupied at least two bases on the Sinai Peninsula since 1982 as part of a Camp David Accords peacekeeping operation.
Elsewhere in the region, the military has established a collection of at least five drone bases in Pakistan; expanded a critical base in Djibouti at the strategic chokepoint between the Suez Canal and the Indian Ocean; created or gained access to bases in Ethiopia, Kenya, and the Seychelles; and set up new bases in Bulgaria and Romania to go with a Clinton administration-era base in Kosovo along the western edge of the gas-rich Black Sea.
Even in Saudi Arabia, despite the public withdrawal, a small U.S. military contingent has remained to train Saudi personnel and keep bases “warm” as potential backups for unexpected conflagrations in the region or, assumedly, in the kingdom itself. In recent years, the military has even established a secret drone base in the country, despite the blowback Washington has experienced from its previous Saudi basing ventures.
Dictators, Death, and Disaster
The ongoing U.S. presence in Saudi Arabia, however modest, should remind us of the dangers of maintaining bases in the region. The garrisoning of the Muslim holy land was a major recruiting tool for al-Qaeda and part of Osama bin Laden’s professed motivation for the 9/11 attacks. (He called the presence of U.S. troops, “the greatest of these aggressions incurred by the Muslims since the death of the prophet.”) Indeed, U.S. bases and troops in the Middle East have been a “major catalyst for anti-Americanism and radicalization” since a suicide bombing killed 241 marines in Lebanon in 1983. Other attacks have come in Saudi Arabia in 1996, Yemen in 2000 against the U.S.S. Cole, and during the wars in Afghanistan and Iraq. Research has shown a strong correlation between a U.S. basing presence and al-Qaeda recruitment.
Part of the anti-American anger has stemmed from the support U.S. bases offer to repressive, undemocratic regimes. Few of the countries in the Greater Middle East are fully democratic, and some are among the world’s worst human rights abusers. Most notably, the U.S. government has offered only tepid criticism of the Bahraini government as it has violently cracked down on pro-democracy protestors with the help of the Saudis and the United Arab Emirates (UAE).
Beyond Bahrain, U.S. bases are found in a string of what the Economist Democracy Index calls “authoritarian regimes,” including Afghanistan, Bahrain, Djibouti, Egypt, Ethiopia, Jordan, Kuwait, Oman, Qatar, Saudi Arabia, UAE, and Yemen. Maintaining bases in such countries props up autocrats and other repressive governments, makes the United States complicit in their crimes, and seriously undermines efforts to spread democracy and improve the wellbeing of people around the world.
Of course, using bases to launch wars and other kinds of interventions does much the same, generating anger, antagonism, and anti-American attacks. A recent U.N. report suggests that Washington’s air campaign against the Islamic State had led foreign militants to join the movement on “an unprecedented scale.”
And so the cycle of warfare that started in 1980 is likely to continue. “Even if U.S. and allied forces succeed in routing this militant group,” retired Army colonel and political scientist Andrew Bacevich writes of the Islamic State, “there is little reason to expect” a positive outcome in the region. As Bin Laden and the Afghan mujahidin morphed into al-Qaeda and the Taliban and as former Iraqi Baathists and al-Qaeda followers in Iraq morphedinto IS, “there is,” as Bacevich says, “always another Islamic State waiting in the wings.”
The Carter Doctrine’s bases and military buildup strategy and its belief that “the skillful application of U.S. military might” can secure oil supplies and solve the region’s problems was, he adds, “flawed from the outset.” Rather than providing security, the infrastructure of bases in the Greater Middle East has made it ever easier to go to war far from home. It has enabled wars of choice and an interventionist foreign policy that has resulted in repeated disasters for the region, the United States, and the world. Since 2001 alone, U.S.-led wars in Afghanistan, Pakistan, Iraq, and Yemen have minimally caused hundreds of thousands of deaths and possibly more than one million deaths in Iraq alone.
The sad irony is that any legitimate desire to maintain the free flow of regional oil to the global economy could be sustained through other far less expensive and deadly means. Maintaining scores of bases costing billions of dollars a year is unnecessary to protect oil supplies and ensure regional peace — especially in an era in which the United States gets only around 10% of its net oil and natural gas from the region. In addition to the direct damage our military spending has caused, it has diverted money and attention from developing the kinds of alternative energy sources that could free the United States and the world from a dependence on Middle Eastern oil — and from the cycle of war that our military bases have fed.
David Vine, a TomDispatch regular, is associate professor of anthropology at American University in Washington, D.C. He is 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. His new book, Base Nation: How U.S. Military Bases Abroad Harm America and the World, will appear in 2015 as part of the American Empire Project (Metropolitan Books).
Copyright 2014 David Vine
The Bases of War in the Middle East
“Are you monitoring the construction?” asked the middle-aged man on a bike accompanied by his dog.
“Ah, sì,” I replied in my barely passable Italian.
“Bene,” he answered. Good.
In front of us, a backhoe’s guttural engine whined into action and empty dump trucks rattled along a dirt track. The shouts of men vied for attention with the metallic whirring of drills and saws ringing in the distance. Nineteen immense cranes spread across the landscape, with the foothills of Italy’s Southern Alps in the background. More than 100 pieces of earthmoving equipment, 250 workers, and grids of scaffolding wrapped around what soon would be 34 new buildings.
We were standing in front of a massive 145-acre construction site for a “little America” rising in Vicenza, an architecturally renowned Italian city and UNESCO world heritage site near Venice. This was Dal Molin, the new military base the U.S. Army has been readying for the relocation of as many as 2,000 soldiers from Germany in 2013.
Since 1955, Vicenza has also been home to another major U.S. base, Camp Ederle. They’re among the more than 1,000 bases the United States uses to ring the globe (with about 4,000 more in the 50 states and Washington, D.C.). This complex of military installations, unprecedented in history, has been a major, if little noticed, aspect of U.S. power since World War II.
During the Cold War, such bases became the foundation for a “forward strategy” meant to surround the Soviet Union and push U.S. military power as close to its borders as possible. These days, despite the absence of a superpower rival, the Pentagon has been intent on dotting the globe with scores of relatively small “lily pad” bases, while continuing to build and maintain some large bases like Dal Molin.
Americans rarely think about these bases, let alone how much of their tax money — and debt — is going to build and maintain them. For Dal Molin and related construction nearby, including a brigade headquarters, two sets of barracks, a natural-gas-powered energy plant, a hospital, two schools, a fitness center, dining facilities, and a mini-mall, taxpayers are likely to shell out at least half a billion dollars. (All the while, a majority of locals passionately and vocally oppose the new base.)
How much does the United States spend each year occupying the planet with its bases and troops? How much does it spend on its global presence? Forced by Congress to account for its spending overseas, the Pentagon has put that figure at $22.1 billion a year. It turns out that even a conservative estimate of the true costs of garrisoning the globe comes to an annual total of about $170 billion. In fact, it may be considerably higher. Since the onset of “the Global War on Terror” in 2001, the total cost for our garrisoning policies, for our presence abroad, has probably reached $1.8 trillion to $2.1 trillion.
How Much Do We Spend?
By law, the Pentagon must produce an annual “Overseas Cost Summary” (OCS) putting a price on the military’s activities abroad, from bases to embassies and beyond. This means calculating all the costs of military construction, regular facility repairs, and maintenance, plus the costs of maintaining one million U.S. military and Defense Department personnel and their families abroad — the pay checks, housing, schools, vehicles, equipment, and the transportation of personnel and materials overseas and back, and far, far more.
The latest OCS, for the 2012 fiscal year ending September 30th, documented $22.1 billion in spending, although, at Congress’s direction, this doesn’t include any of the more than $118 billion spent that year on the wars in Afghanistan and elsewhere around the globe.
While $22.1 billion is a considerable sum, representing about as much as the budgets for the Departments of Justice and Agriculture and about half the State Department’s 2012 budget, it contrasts sharply with economist Anita Dancs’s estimate of $250 billion. She included war spending in her total, but even without it, her figure comes to around $140 billion — still $120 billion more than the Pentagon suggests.
Wanting to figure out the real costs of garrisoning the planet myself, for more than three years, as part of a global investigation of bases abroad, I’ve talked to budget experts, current and former Pentagon officials, and base budget officers. Many politely suggested that this was a fool’s errand given the number of bases involved, the complexity of distinguishing overseas from domestic spending, the secrecy of Pentagon budgets, and the “frequently fictional” nature of Pentagon figures. (The Department of Defense remains the only federal agency unable to pass a financial audit.)
Ever the fool and armed only with the power of searchable PDFs, I nonetheless plunged into the bizarro world of Pentagon accounting, where ledgers are sometimes still handwritten and $1 billion can be a rounding error. I reviewed thousands of pages of budget documents, government and independent reports, and hundreds of line items for everything from shopping malls to military intelligence to postal subsidies.
Wanting to err on the conservative side, I decided to follow the methodology Congress mandated for the OCS, while also looking for overseas costs the Pentagon or Congress might have ignored. It hardly made sense to exclude, for example, the health-care costs the Department of Defense pays for troops on overseas bases, spending for personnel in Kosovo, or the price tag for supporting the 550 bases we have in Afghanistan.
In the spirit of “monitoring the construction,” let me lead you on an abbreviated account of my quest to come up with the real costs of occupying planet Earth.
Although the Overseas Cost Summary initially might seem quite thorough, you’ll soon notice that countries well known to host U.S. bases have gone missing-in-action. In fact, at least 18 countries and foreign territories on the Pentagon’s own list of overseas bases go unnamed.
Particularly surprising is the absence of Kosovo and Bosnia. The military has had large bases and hundreds of troops there for more than a decade, with another Pentagon report showing 2012 costs of $313.8 million. According to that report, the OCS also understates costs for bases in Honduras and Guantánamo Bay by about a third or $85 million.
And then other oddities appear: in places like Australia and Qatar, the Pentagon says it has funds to pay troops but no money for “operations and maintenance” to turn the lights on, feed people, or do regular repairs. Adjusting for these costs adds an estimated $36 million. As a start, I found:
$436 million for missing countries and costs.
That’s not much compared to $22 billion and chump change in the context of the whole Pentagon budget, but it’s just a beginning.
At Congress’s direction, the Pentagon also omits the costs of bases in the oft-forgotten U.S. territories — Puerto Rico, Guam, American Samoa, the Northern Mariana Islands, and the U.S. Virgin Islands. This is strange because the Pentagon considers them “overseas.” More important, as economist Dancs says, “The United States retains territories… primarily for the purposes of the military and projecting military power.” Plus, they are, well, literally overseas.
Conservatively, this adds $3 billion in total military spending to the OCS.
However, there are more quasi-U.S. territories in the form of truly forgotten Pacific Ocean island nations in “compacts of free association” with the United States — the Marshall Islands, the Federated States of Micronesia, and Palau. Ever since it controlled these islands as “strategic trust territories” after World War II, the U.S. has enjoyed the right to establish military facilities on them, including the nuclear test site on the Bikini Atoll and the Ronald Reagan Ballistic Missile Defense Test Site elsewhere in the Marshalls.
This comes in exchange for yearly aid payments from the Office of Insular Affairs, adding another $571 million and yielding total costs of:
$3.6 billion for territories and Pacific island nations.
Speaking of the oceans, at Congress’s instruction, the Pentagon excludes the cost of maintaining naval vessels overseas. But Navy and Marine Corps vessels are essentially floating (and submersible) bases used to maintain a powerful military presence on (and under) the seas. A very conservative estimate for these costs adds another $3.8 billion.
Then there are the costs of Navy prepositioned ships at anchor around the world. Think of them as warehouse-bases at sea, stocked with weaponry, war materiel, and other supplies. And don’t forget Army prepositioned stocks. Together, they come to an estimated $604 million a year. In addition, the Pentagon appears to omit some $861 million for overseas “sealift” and “airlift” and “other mobilization” expenses. All told, the bill grows by:
$5.3 billion for Navy vessels and personnel plus seaborne and airborne assets.
Also strangely missing from the Cost Summary is that little matter of health-care costs. Overseas costs for the Defense Health Program and other benefits for personnel abroad add an estimated $11.7 billion yearly. And then there’s $538 million in military and family housing construction that the Pentagon also appears to overlook in its tally.
So too, we can’t forget about shopping on base, because we the taxpayers are subsidizing those iconic Walmart-like PX (Post Exchange) shopping malls on bases worldwide. Although the military is fond of saying that the PX system pays for itself because it helps fund on-base recreation programs, Pentagon leaders neglect to mention that the PXs get free buildings and land, free utilities, and free transportation of goods to overseas locations. They also operate tax-free.
While there’s no estimate for the value of the buildings, land, and utilities that taxpayers provide, the exchanges reported $267 million in various subsidies for 2011. (Foregone federal taxes might add $30 million or more to that figure.) Add in as well postal subsidies of at least $71 million and you have:
$12.6 billion for health care, military and family housing, shopping and postal subsidies.
Another Pentagon exclusion is rent paid to other countries for the land we garrison. Although a few countries like Japan, Kuwait, and South Korea actually pay the United States to subsidize our garrisons — to the tune of $1.1 billion in 2012 — far more common, according to base expert Kent Calder, “are the cases where the United States pays nations to host bases.”
Given the secretive nature of basing agreements and the complex economic and political trade-offs involved in base negotiations, precise figures are impossible to find. However, Pentagon-funded research indicates that 18% of total foreign military and economic aid goes toward buying base access. That swells our invoice by around $6.3 billion. Payments to NATO of $1.7 billion “for the acquisition and construction of military facilities and installations” and other purposes, brings us to:
$6.9 billion in net “rent” payments and NATO contributions.
Although the OCS must report the costs of all military operations abroad, the Pentagon omits $550 million for counternarcotics operations and $108 million for humanitarian and civic aid. Both have, as a budget document explains about humanitarian aid, helped “maintain a robust overseas presence,” while the military “obtains access to regions important to U.S. interests.” The Pentagon also spent $24 million on environmental projects abroad to monitor and reduce on-base pollution, dispose of hazardous and other waste, and for “initiatives…in support of global basing/operations.” So the bill now grows by:
$682 million for counternarcotics, humanitarian, and environmental programs.
The Pentagon tally of the price of occupying the planet also ignores the costs of secret bases and classified programs overseas. Out of a total Pentagon classified budget of $51 billion for 2012, I conservatively use only the estimated overseas portion of operations and maintenance spending, which adds $2.4 billion. Then there’s the $15.7 billion Military Intelligence Program. Given that U.S. law generally bars the military from engaging in domestic spying, I estimate that half this spending, $7.9 billion, took place overseas.
Next, we have to add in the CIA’s paramilitary budget, funding activities including secret bases in places like Somalia, Libya, and elsewhere in the Middle East, and its drone assassination program, which has grown precipitously since the onset of the war on terror. With thousands dead (including hundreds of civilians), how can we not consider these military costs? In an email, John Pike, director of GlobalSecurity.org, told me that “possibly a third” of the CIA’s estimated budget of $10 billion may now go to paramilitary costs, yielding:
$13.6 billion for classified programs, military intelligence, and CIA paramilitary activities.
Last but certainly not least comes the real biggie: the costs of the 550 bases the U.S. built in Afghanistan, as well as the last three months of life for our bases in Iraq, which once numbered 505 before the U.S. pullout from that country (that is, the first three months of fiscal year 2012). While the Pentagon and Congress exclude these costs, that’s like calculating the New York Yankees’ payroll while excluding salaries for each year’s huge free agent signings.
Conservatively following the OCS methodology used for other countries, but including costs for health care, military pay in the base budget, rent, and “other programs,” we add an estimated:
$104.9 billion for bases and military presence in Afghanistan and other war zones.
Having started with the OCS figure of $22.1 billion, the grand total now has reached:
$168 billion ($169,963,153,283 to be exact).
That’s nearly an extra $150 billion. Even if you exclude war costs — and I think the Yankees show why that’s a bad idea — the total still reaches $65.1 billion, or nearly three times the Pentagon’s calculation.
But don’t for a second think that that’s the end of our garrisoning costs. In addition to spending likely hidden in the nooks and crannies of its budget, there are other irregularities in the Pentagon’s accounting. Costs for 16 countries hosting U.S. bases but left out of the OCS entirely, including Colombia, El Salvador, and Norway, may total more than $350 million. The costs of the military presence in Colombia alone could reach into the tens of millions in the context of more than $8.5 billion in Plan Colombia funding since 2000. The Pentagon also reports costs of less than $5 million each for Yemen, Israel, Uganda, and the Seychelles Islands, which seems unlikely and could add millions more.
When it comes to the general U.S. presence abroad, other costs are too difficult to estimate reliably, including the price of Pentagon offices in the United States, embassies, and other government agencies that support bases and troops overseas. So, too, U.S. training facilities, depots, hospitals, and even cemeteries allow overseas bases to function. Other spending includes currency-exchange costs, attorneys’ fees and damages won in lawsuits against military personnel abroad, short-term “temporary duty assignments,” U.S.-based troops participating in exercises overseas, and perhaps even some of NASA’s military functions, space-based weapons, a percentage of recruiting costs required to staff bases abroad, interest paid on the debt attributable to the past costs of overseas bases, and Veterans Administration costs and other retirement spending for military personnel who served abroad.
Beyond my conservative estimate, the true bill for garrisoning the planet might be closer to $200 billion a year.
Those, by the way, are just the costs in the U.S. government’s budget. The total economic costs to the U.S. economy are higher still. Consider where the taxpayer-funded salaries of the troops at those bases go when they eat or drink at a local restaurant or bar, shop for clothing, rent a local home, or pay local sales taxes in Germany, Italy, or Japan. These are what economists call “spillover” or “multiplier effects.” When I visited Okinawa in 2010, for example, Marine Corps representatives bragged about how their presence contributes $1.9 billion annually to the local economy through base contracts, jobs, local purchases, and other spending. Although the figures may be overstated, it’s no wonder members of Congress like Senator Kay Bailey Hutchison have called for a new “Build in America” policy to protect “the fiscal health of our nation.”
And the costs are still broader when one considers the trade-offs, or opportunity costs, involved. Military spending creates fewer jobs per million dollars expended than the same million invested in education, health care, or energy efficiency — barely half as many as investing in schools. Even worse, while military spending clearly provides direct benefits to the Lockheed Martins and KBRs of the military-industrial complex, these investments don’t, as economist James Heintz says, boost the “long-run productivity of the rest of the private sector” the way infrastructure investments do.
To adapt a famous line from President Dwight Eisenhower: every base that is built signifies in the final sense a theft. Indeed, think about what Dal Molin’s half a billion dollars in infrastructure could have done if put to civilian uses. Again echoing Ike, the cost of one modern base is this: 260,000 low-income children getting health care for one year or 65,000 going to a year of Head Start or 65,000 veterans receiving VA care for a year.
A Different Kind of “Spillover”
Bases also create a different “spillover” in the financial and non-financial costs host countries bear. In 2004, for example, on top of direct “burden sharing” payments, host countries made in-kind contributions of $4.3 billion to support U.S. bases. In addition to agreeing to spend billions of dollars to move thousands of U.S. Marines and their families from Okinawa to Guam, the Japanese government has paid nearly $1 billion to soundproof civilian homes near U.S. air bases on Okinawa and millions in damages for successful noise pollution lawsuits. Similarly, as base expert Mark Gillem reports, between 1992 and 2003, the Korean and U.S. governments paid $27.3 million in damages because of crimes committed by U.S. troops stationed in Korea. In a single three-year period, U.S. personnel “committed 1,246 criminal acts, from misdemeanors to felonies.”
As these crimes indicate, costs for local communities extend far beyond the economic. Okinawans have recently been outraged by what appears to be another in a long series of rapes committed by U.S. troops. Which is just one example of how, from Japan to Italy, there are what Anita Dancs calls the “costs of rising hostility” over bases. Environmental damage pushes the financial and non-financial toll even higher. The creation of a base on Diego Garcia in the Indian Ocean sent all of the local Chagossian people into exile.
So, too, U.S. troops and their families bear some of those nonfinancial costs due to frequent moves and separation during unaccompanied tours abroad, along with attendant high rates of divorce, domestic violence, substance abuse, sexual assault, and suicide.
“No one, no one likes it,” a stubbly-faced old man told me as I was leaving the construction site. He remembered the Americans arriving in 1955 and now lives within sight of the Dal Molin base. “If it were for the good of the people, okay, but it’s not for the good of the people.”
“Who pays? Who pays?” he asked. “Noi,” he said. We do.
Indeed, from that $170 billion to the costs we can’t quantify, we all do.
David Vine, a Tom Dispatch regular, is assistant professor of anthropology at American University, in Washington, DC. He is the author of Island of Shame: The Secret History of the U.S. Military Base on Diego Garcia (Princeton University Press, 2009). He has written for the New York Times, the Washington Post, the Guardian, and Mother Jones, among other places. He is currently completing a book about the more than 1,000 U.S. military bases located outside the United States. To read a detailed description of the calculations described in this article and view a chart of the costs of the U.S. military presence abroad, visit www.davidvine.net.
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Copyright 2012 David Vine