What we need in Iraq is not a New Diplomatic Offensive (capitals in the original) so much as energy and competence in fighting the fight. From the outset of the Iraq war much of our difficulty has stemmed not so much from failures to find the right strategy, as from an astounding and depressing inability to implement the strategic and operational choices we have nominally made.
This inability has come from things as personal as picking the wrong people for key positions, in the apparent belief that generals are interchangeable cogs in a counterinsurgency machine. It has come from an unwillingness or inability to grab the bureaucracy by the throat and make it act–which is why, three years after the insurgency began, we still send soldiers out to risk roadside bomb attacks in overweight Humvees when there are half a dozen commercially available armored vehicles designed to minimize the effects of such blasts. It is why–although the government has declared long before the ISG issued its report that training the Iraqis is Job One–we still embed fewer than a dozen American advisers in an Iraqi battalion when the right number is three to five times that many.
We have not come up to the brink of failure because we did not know how important it is to employ young Iraqi men or to keep detained insurgents out of circulation or to prevent militia penetration of the security forces by vetting the commanders of those forces. We have known these things–but we have not done these things.
An truely excellent analysis of the ISG by Eliot A. Cohen, Robert E. Osgood Professor of Strategic Studies at Johns Hopkins University’s School of Advanced International Studies. Cohen leads off with a scenario that is very different from the ISG, one that is much more likely to produce results. In fact, his scenario may be exactly what is going on now out of CNN’s view – quietly and secretly, like most effective diplomacy.
The theory of the thing is very peculiar indeed. You are in the middle of a war–a hard war, a war that is going badly. If the government has bogged down, if the people inside have gone stale, you would say that the sound thing, the Churchillian or Lincolnian or Rooseveltian thing, would be, first, to fire a bunch of officials (generals as well as top civilians), promote or bring in fresh talent, and put together a small group of people to take a new and unillusioned look. Those people would report back in secrecy to the president and his most senior advisers and aides.
They would consist of experienced soldiers and civilians in whom the president (who, after all, has to make the strategic decisions, and is the accountable executive) has trust. There would not be many of them, a half dozen or so, and they would have to be hardy enough to visit the war zone for several weeks, talking not just to politicians and generals but to captains and sergeants. They would go see things for themselves. They would visit a forward operating base near Tikrit; they would spend some time with Iraqi soldiers in Taji; they would take their chances in a convoy to al Asad, or even a patrol in Tal Afar.
They–not their staff of a few soldiers and secretaries–would do the probing, digging, thinking, discussing and, above all, the writing. The chairman of the group would insist that they air their disagreements candidly and thoroughly in front of the president, engaging in a debate that might last a day, perhaps longer. The rest of us would not find out about the panel until months, or even years, after it reported back; maybe not until the war was over.
The administration’s congressional critics (including those of its own party) came up with a different solution: the Iraq Study Group (ISG), which has now produced a document that consists of 50 pages of recommendations, preceded by a 40-page thumbnail sketch of the current situation in Iraq and 50 pages of maps, lists of people, and full-length biographies of the commissioners. This is a group composed, for the most part, of retired eminent public officials, most with limited or no expertise in the waging or study of war. It consists of individuals carefully selected with an eye to diverse partisan and other irrelevant personal characteristics. These worthies, with not one chairman but two (for balance, of course), turned to several score experts known to disagree vehemently with one another about the best course of action to be pursued in Iraq.
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War, and warlike statecraft, is a hard business, and though this is supposed to be a report dominated by “realists,” there is nothing realistic in failing to spell out the bloody deeds, grim probabilities and dismal consequences associated with even the best course of action. Indeed, some parts of the report read as sheer fantasy–Recommendation 15, for example, which provides that part of the American deal with Syria should include the latter’s full cooperation in investigating the Hariri assassination, verifiable cessation of Syrian aid to Hezbollah, and its support for persuading Hamas to recognize Israel.
The prescriptions for internal processes in Iraq are only somewhat better. The ISG argues that American forces should shift to developing Iraqi security forces and backing them up, which is more or less the course we are on now. It talks of milestones for Iraqi performance, as if Iraqi benchmarking were more a problem than Iraqi will, and Iraqi will more the problem than Iraqi capability. It suggests announcing our own planned redeployments without considering the most obvious consequence, which is that Iraqis of many political hues will decide that the Americans are leaving, and the time has come to cut deals with Jaish al Mahdi, or the Badr organization, or al Qaeda in Iraq, or any of the other cutthroat outfits infesting that bleeding country.
Quite apart from the psychological impact of our actions, there is the sober fact that the Iraqi army is small, 138,000-strong (and that number probably overstated), and that building effective security forces takes time. The 188,000-man police forces are corrupt, riddled with militia influence, and in need of a thorough overhaul. We cannot build the Iraqi security forces without a substantial combat presence. Nor is the problem merely one of training, as Iraqi corporals driving around in pickup trucks without functional radios might have sourly pointed out, had they had the chance to talk to a Study Group member.
Like Democratic Iraq policy, the ISG recommendations are largely a catalog of wishes – wishes having no recommended realization:
Thus, unsurprisingly, in a public document of this kind, euphemism and imprecision abound. The U.S. needs to give “disincentives” to Syria and Iran: But the real question has always been whether we are willing to use a variety of overt and covert means–from bombing insurgent safe houses to sabotaging refineries, from mining harbors to supporting their own insurgents–to do so. And, in fact, the report mentions no means for squeezing either country.
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