Iraq: The Logic of Disengagement

Edward N. Luttwak

From Foreign Affairs, January/February 2005

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Summary:  The best strategy for the United States now in Iraq is disengagement. In a reversal of the usual sequence, the U.S. hand will be strengthened by withdrawal, and Washington might actually be able to lay the groundwork for a reasonably stable Iraq. Why? Because geography ensures that all other parties are far more exposed to the dangers of an anarchical Iraq than is the United States itself.

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

WITHDRAW NOW

Given all that has happened in Iraq to date, the best strategy for the United States is disengagement. This would call for the careful planning and scheduling of the withdrawal of U.S. forces from much of the country--while making due provisions for sharp punitive strikes against any attempt to harass the withdrawing forces. But it would primarily require an intense diplomatic effort, to prepare and conduct parallel negotiations with several parties inside Iraq and out. All have much to lose or gain depending on exactly how the U.S. withdrawal is carried out, and this would give Washington a great deal of leverage that could be used to advance U.S. interests.

The United States cannot threaten to unleash anarchy in Iraq in order to obtain concessions from others, nor can it make transparently conflicting promises about the country's future to different parties. But once it has declared its firm commitment to withdraw--or perhaps, given the widespread conviction that the United States entered Iraq to exploit its resources, once visible physical preparations for an evacuation have begun--the calculus of other parties will change. In a reversal of the usual sequence, the U.S. hand will be strengthened by withdrawal, and Washington may well be able to lay the groundwork for a reasonably stable Iraq. Nevertheless, if key Iraqi factions or Iraq's neighbors are too shortsighted or blinded by resentment to cooperate in their own best interests, the withdrawal should still proceed, with the United States making such favorable or unfavorable arrangements for each party as will most enhance the future credibility of U.S. diplomacy.

The United States has now abridged its vastly ambitious project of creating a veritable Iraqi democracy to pursue the much more realistic aim of conducting some sort of general election. In the meantime, however, it has persisted in futile combat against factions that should be confronting one another instead. A strategy of disengagement would require bold, risk-taking statecraft of a high order, and much diplomatic competence in its execution. But it would be soundly based on the most fundamental of realities: geography that alone ensures all other parties are far more exposed to the dangers of an anarchical Iraq than is the United States itself.

SPAIN, NAPLES, AND IRAQ

If Iraq could indeed be transformed into a successful democracy by a more prolonged occupation, as Germany and Japan were after 1945, then of course any disengagement would be a great mistake. In both of those countries, however, by the time U.S. occupation forces arrived the local populations were already thoroughly disenthralled from violent ideologies, and so they eagerly collaborated with their occupiers to construct democratic institutions. Unfortunately, because of the hostile sentiments of the Iraqi population, the relevant precedents for Iraq are far different.

The very word "guerrilla" acquired its present meaning from the ferocious insurgency of the illiterate Spanish poor against their would-be liberators under the leadership of their traditional oppressors. On July 6, 1808, King Joseph of Spain presented a draft constitution that ...

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