A War the Pentagon Can’t Win
AS the National Intelligence Estimate issued last week confirms, a terrorist haven has emerged in Pakistan’s tribal belt. And as recent revelations about an aborted 2005 operation in the region demonstrate, our Defense Department is chronically unable to conduct the sort of missions that would disrupt terrorist activity there and in similarly ungoverned places.
These are perhaps the most important kind of counterterrorism missions. Because the Pentagon has shown that it cannot carry them out, the Central Intelligence Agency should be given the chance to perform them.
The story of the scrubbed 2005 operation illustrates why the Pentagon is incapable of doing what needs to be done. The preparations for the mission to capture or kill Al Qaeda’s No. 2 leader, Ayman al-Zawahri, appear to have unfolded like others before it. Intelligence was received about a high-level Qaeda meeting. A small snatch or kill operation was to be carried out by Special Operations. But military brass added large numbers of troops to conduct additional intelligence, force protection, communications and extraction work.
At that point, as one senior intelligence official told this newspaper, “The whole thing turned into the invasion of Pakistan,” and Secretary of Defense Donald Rumsfeld pulled the plug.
To those of us who worked in counterterrorism in the 1990s, this sequence of events feels like the movie “Groundhog Day.” Similar decision-making led to the failure to mount critical operations on at least three occasions during the Clinton administration. The most notable was the effort to get the Pentagon to conduct a ground operation against the Qaeda leadership in Afghanistan beginning in late 1998.
The Clinton White House repeatedly requested options involving ground forces that could hunt and destroy terrorists in Afghanistan. Repeatedly, senior military officials declared such a mission “would be Desert One,” referring to the disastrous 1980 effort to free American hostages in Iran. When the Pentagon finally delivered a plan, the deployment envisioned would have been sufficient to take and hold Kabul but not to surprise and pin down a handful of terrorists.
But the Zawahri stand-down is even more telling. It occurred four years into the global war on terrorism, when the basic questions about the nature of the Qaeda threat had been settled and the nation, in the oft-intoned phrase of the Bush administration, was said to be always “on the offensive.” Moreover, it happened on the watch of Donald Rumsfeld, the most dominating secretary of defense in memory, who overruled military planners routinely as he micromanaged the deployment to Iraq. Perhaps his attention was focused on the growing mess in that country, but even Mr. Rumsfeld, who viewed special forces as the keystone of a transformed 21st-century American military, could not keep on track a mission that would have stunned Al Qaeda.
Highly mobile, highly lethal counterterrorism operations are clearly possible. Israel scored victories with raids in Entebbe, Uganda; Tunis; and Beirut, Lebanon, in the 1970s and 1980s. Other countries, like Germany, have carried out similar operations, like the Mogadishu raid of 1977 that freed passengers on a Lufthansa plane hijacked to Somalia by the Baader-Meinhof gang. An operation in Pakistan’s tribal areas — setting aside the issue of whether this could politically upend President Pervez Musharraf — would be extremely difficult. But it is hard to believe it is impossible.
Since the Desert One debacle, the United States has poured vast resources into its special forces. The Special Operations Command budget has nearly doubled since 2001, and it is expected to grow 150 percent over five years. The command includes more than 50,000 troops, the equivalent of three or four infantry divisions. The best of them — Delta Force and the Navy Seals — have developed into highly skilled unconventional forces.
Yet fear of failure and casualties has meant they are seldom, if ever, deployed for such counterterrorism operations. In theory, the best place in the government for small-scale missions to be planned and executed is the Pentagon, because snatch or kill teams should be plugged into a larger military support team. The reality, unfortunately, is that they can’t be plugged in without being bogged down.
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