Give War a Chance

Edward N. Luttwak

From Foreign Affairs, July/August 1999

Article preview: first 500 of 2,820 words total.

Summary:  Since the establishment of the United Nations, great powers have rarely let small wars burn themselves out. Bosnia and Kosovo are the latest examples of this meddling. Conflicts are interrupted by a steady stream of cease-fires and armistices that only postpone war-induced exhaustion and let belligerents rearm and regroup. Even worse are U.N. refugee-relief operations and NGOs, which keep resentful populations festering in camps and sometimes supply both sides in armed conflicts. This well-intentioned interference only intensifies and prolongs struggles in the long run. The unpleasant truth is that war does have one useful function: it brings peace. Let it.

Edward N. Luttwak is Senior Fellow at the Center for Strategic and International Studies.

PREMATURE PEACEMAKING

An unpleasant truth often overlooked is that although war is a great evil, it does have a great virtue: it can resolve political conflicts and lead to peace. This can happen when all belligerents become exhausted or when one wins decisively. Either way the key is that the fighting must continue until a resolution is reached. War brings peace only after passing a culminating phase of violence. Hopes of military success must fade for accommodation to become more attractive than further combat.

Since the establishment of the United Nations and the enshrinement of great-power politics in its Security Council, however, wars among lesser powers have rarely been allowed to run their natural course. Instead, they have typically been interrupted early on, before they could burn themselves out and establish the preconditions for a lasting settlement. Cease-fires and armistices have frequently been imposed under the aegis of the Security Council in order to halt fighting. NATO's intervention in the Kosovo crisis follows this pattern.

But a cease-fire tends to arrest war-induced exhaustion and lets belligerents reconstitute and rearm their forces. It intensifies and prolongs the struggle once the cease-fire ends -- and it does usually end. This was true of the Arab-Israeli war of 1948-49, which might have come to closure in a matter of weeks if two cease-fires ordained by the Security Council had not let the combatants recuperate. It has recently been true in the Balkans. Imposed cease-fires frequently interrupted the fighting between Serbs and Croats in Krajina, between the forces of the rump Yugoslav federation and the Croat army, and between the Serbs, Croats, and Muslims in Bosnia. Each time, the opponents used the pause to recruit, train, and equip additional forces for further combat, prolonging the war and widening the scope of its killing and destruction. Imposed armistices, meanwhile -- again, unless followed by negotiated peace accords -- artificially freeze conflict and perpetuate a state of war indefinitely by shielding the weaker side from the consequences of refusing to make concessions for peace.

The Cold War provided compelling justification for such behavior by the two superpowers, which sometimes collaborated in coercing less-powerful belligerents to avoid being drawn into their conflicts and clashing directly. Although imposed cease-fires ultimately did increase the total quantity of warfare among the lesser powers, and armistices did perpetuate states of war, both outcomes were clearly lesser evils (from a global point of view) than the possibility of nuclear war. But today, neither Americans nor Russians are inclined to intervene competitively in the wars of lesser powers, so the unfortunate consequences of interrupting war persist while no greater danger is averted. It might be best for all parties to let minor wars burn themselves out.

THE PROBLEMS OF PEACEKEEPERS

Today cease-fires and armistices are imposed on lesser powers by multilateral agreement -- not to avoid great-power competition but for essentially disinterested and indeed frivolous motives, such as television audiences' revulsion at harrowing scenes of war. But this, perversely, can systematically prevent ...

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