The Need for a Syrian Deal
In the wake of the Paris terror attacks and other mass killings in Beirut and aboard a Russian airliner there are new demands for military action. But the one step that might help matters is a more pragmatic approach to resolving the political crisis in Syria, as ex-CIA analyst Paul R. Pillar explains.
By Paul R. Pillar
As usual after a terrorist event as salient and jarring as the attacks in Paris, instant analysis and exhortation have gotten well ahead of the availability of information about the genesis of the attacks. A claim statement, a general pronouncement by the French president, and the few investigative tidbits that have become public so far are not nearly enough to reach sound conclusions about exactly where and how this operation was conceived, prepared, and directed, and thus what the most appropriate policy responses to it will be.
The way that the name Islamic State or ISIS has been used to date leaves a range of possibilities in that regard. Nonetheless a strong public consensus has quickly been reached that this attack was ordered and organized by the people who, under that name, have been trying to run a radical mini-state from Raqqa, Syria. That may turn out to be the case, but whether it does or doesn’t, Western policymakers have at least a political imperative to respond as if this were already established fact.
The dominant theme in the surge of commentary in the first couple of days after the attack has been that ISIS is a global threat, not just a regional one, and must be confronted as such. Policymakers will be expected to respond in a way consistent with that theme, too. As they do, however, they should be wary of the common conflation between military outcomes in other regions and terrorism and counterterrorism in the West.
Any escalation of military efforts in Iraq and Syria should be undertaken with our eyes open to two realities. One is that we may be sustaining the motive for ISIS to strike back in retaliation in the West, even though the group earlier had every reason to stay focused on trying to build its so-called caliphate in the Middle East rather than to embark on a campaign of transnational terrorism.
We may already be seeing a pattern in that regard with what has happened in the last two weeks in Beirut and the Sinai as well as Paris. The West and especially the United States already has crossed this particular Rubicon, however, and so the practical effect of awareness of this reality may be nil.
The other reality is that military success on a distant battlefield is not to be equated with elimination of a terrorist threat at home. Despite all the attention given to terrorist havens, possession of a sandy and distant piece of real estate is not one of the more important variables that determine who poses or doesn’t pose a terrorist threat to one’s homeland.
The motivations and the tactical opportunities that are more significant variables will still be there. The chief beneficial effect, as far as transnational terrorism is concerned, of any military success against ISIS is to refute the belief that the group’s expansion is inevitable and thus to dampen the group’s attraction to would-be recruits.
Years of experience confronting Al Qaeda provide some relevant lessons in this regard. One is that smashing a center does not eliminate transnational terrorism from the periphery, with a group such as Al Qaeda in the Arabian Peninsula having become more significant in that regard than Al Qaeda central. (And lest we forget, ISIS was once one of those Al Qaeda affiliates.)
Another lesson, looking at such post-9/11 anti-U.S. terrorists as Faisal Shahzad and Nidal Hasan, is that lethality does not necessarily correlate with training received from a group overseas.
Most of the effective counterterrorist work against the universe of radicals operating under the ISIS label will involve the same unspectacular security work that is commonly performed outside of public view. This fact will be a frustration for policymakers looking for more visible ways of responding to demands for action.
The incidence of terrorism in the West under the ISIS label also will involve, as such terrorism always has, social and economic issues within Western countries. One does not have to be a Le Pen-style exploiter of the Paris tragedy to note that according to one of those early tidbits, one suspected perpetrator was a French citizen with a long criminal record who had been on an extremist watch list since 2010.
We should also think about the diplomatic effects of the Paris attacks, especially given how efforts to counter ISIS have been badly impeded and confused by other quarrels involved in the complicated war in Syria. Secretary of State Kerry is correct that continuation of that war provides continued opportunities for ISIS.
This is one example of how such strife has traditionally aided radical groups, both by breaking down whatever order would have prevented them from emerging in the first place and by enabling them to fill the role of the most forthright opponent of a despised power structure. In the case of ISIS, the group was born under a different name as a direct result of the internal warfare touched off by the U.S. invasion of Iraq, and it got a later boost by exploiting the civil war in Syria.
Curbing such benefits for ISIS is the principal reason for the U.S. to expend much effort on multilateral diplomacy aimed at somehow resolving the Syrian conflict. The idea is that if some workable compromise can be reached among the other players, both internal and external, a more organized and coherent effort against the ISIS presence in the country can ensue.
The concept is sound as far as it goes, but it risks holding a coherent anti-ISIS effort hostage to resolution of other disputes that are so messy and involve such irreconcilable players that a stable and lasting compromise might not be achieved for years.
An alternative approach would be to devote more effort searching for ways to make the anti-ISIS effort at least marginally more organized even in the face of continued disagreement over the other power struggles in Syria. This approach has plenty of problems as well, and obvious formulas for implementing it do not present themselves.
But the Paris attacks have strengthened arguments that could be used in favor of moving in this direction. Western governments can say, with even more conviction than before, to the other players both inside and outside Syria, “Look, the main reason we are interested in this mess is because of the connection it may have to threats against our citizens back home. Compared to that issue, we really don’t care much about disputes over who has how much power in Damascus. We will deploy our resources, our leverage, and our attention accordingly.”
Such a message ought to have some resonance among other important outside players. The Russians say they are concerned about countering ISIS, and they may have received a taste of how ISIS-related transnational terrorism can affect their interests with the plane crash in the Sinai. The Iranians received a taste with the attacks on their Shiite and Hezbollah friends in Lebanon last week.
Paul R. Pillar, in his 28 years at the Central Intelligence Agency, rose to be one of the agency’s top analysts. He is now a visiting professor at Georgetown University for security studies. (This article first appeared as a blog post at The National Interest’s Web site. Reprinted with author’s permission.)