If there were a prize awarded for the wisdom-per-word ratio for all the bloviating about the Iraq War, retired General William Odom’s prepared testimony before the Senate Foreign Relations Committee on January 18 would win hands down. As regular readers of this blog know, my practice is to pass along a few quotes that’s both long enough to embody an essence of the link but also brief enough to be a tease for more. In this case the temptation is to quote in-line the whole thing. But I’ll try not to.
Here are the four major realities that define that context:
1. Confusion about war aims and US interests. The president stated three war aims clearly and repeatedly:
* the destruction of Iraqi WMD;
* the overthrow of Saddam Hussein; and
* the creation of a liberal democratic Iraq.
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And is it in the US interest to continue pursuing the third? Or is it time to redefine our aims? And, concomitantly, to redefine what constitutes victory?
2. The war has served primarily the interests of Iran and al-Qaeda, not American interests.
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3. On the international level, the war has effectively paralyzed the United States militarily and strategically, denying it any prospect of revising its strategy toward an attainable goal.
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4. Overthrowing the Iraqi regime in 2003 insured that the country would fragment into at least three groups; Sunnis, Shi’ites, and Kurds. In other words, the invasion made it inevitable that a civil war would be required to create a new central government able to control all of Iraq. Yet a civil war does not insure it. No faction may win the struggle. A lengthy stalemate, or a permanent breakup of the country is possible. The invasion also insured that outside countries and groups would become involved. Al-Qaeda and Iran are the most conspicuous participants so far, Turkey and Syria less so. If some of the wealthy oil-producing countries on the Arabian Peninsula are not already involved, they are most likely to support with resources any force in Iraq that opposes Iranian influence.
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Let me now turn to key aspects of the president’s revised approach to the war, as well as several other proposals.
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Just for purposes of analysis, let us suppose we had unlimited numbers of US troops to deploy in Iraq. Would that change my assessment? In principle, if two or three million troops were deployed there with the latitude to annihilate all resistance without much attention to collateral civilian casualties and human rights, order might well be temporarily reestablished under a reign of US terror. The problem we would then face is that we would be opposed not only by 26 million Iraqis but also by millions of Arabs and Iranians surrounding Iraq, peoples angered by our treatment of Muslims and Arabs. These outsiders are already involved to some degree in the internal war in Iraq, and any increase of US forces is likely to be exceeded by additional outside support for insurgents.
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It is a strategic error of monumental proportions to view the war as confined to Iraq. Yet this is the implicit assumption on which the president’s new strategy is based.
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Training the Iraqi military and police force has been proposed repeatedly as a way to bring stability to Iraq and allow US forces to withdraw. Recently, new variants, such as embedding US troops within Iraqi units, have been offered. The Iraq Study Group made much of this technique. I know of no historical precedent to suggest that any of them will succeed. The problem is not the competency of Iraqi forces. It is political consolidation and gaining the troops’ loyalties to the government and their commanders as opposed to their loyalties to sectarian leaders, clans, families, and relatives. For what political authority are Iraqi soldiers and police willing to risk their lives? To the American command? What if American forces depart? Won’t they be called traitors for supporting the invaders and occupiers? Will they trust in a Shi’ite-dominated government and ministry of interior, which is engaged in assassinations of Sunnis? Sunni Arabs and Kurds would be foolish to do so, although financial desperation has driven many to risk it.
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A shortage of funds has not been the cause of failed reconstruction efforts in Iraq. Administrative capacity to use funds effectively was and remains the primary obstacle.
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Such wars are about “who will rule,” and who will rule depends on “who can tax” and build an effective state apparatus down to the village level.
The taxation issue is not even on the agenda of US programs for Iraq. Nor was it a central focus in Vietnam, El Salvador, the Philippines, and most other cases of US-backed governments embroiled in internal wars. Where US funding has been amply provided to those governments, the recipient regime has treated those monies as its tax base while failing to create an indigenous tax base. In my own study of three counterinsurgency cases, and from my experience in Vietnam, I discovered that the regimes that received the least US direct fiscal support had the most success against the insurgents. Providing funding and forces to give an embattled regime more “time” to gain adequate strength is like asking a drunk to drink more whiskey in order to sober up.
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This is the crux of the dilemma facing all such internal wars. I make this assertion not only based on my own study, but also in light of considerable literature that demonstrates that the single best index of the strength of any state is its ability to collect direct taxes, not export-import tax or indirect taxes. The latter two are relatively easy to collect by comparison, requiring much weaker state institutions.
I find these last observations provocative, not least because they raise the issue of what the anti-tax fanatics on the far right (Grover Norquist, you know who you are) are doing to the social glue that holds our own country together.