By: Dhritiman Banerjee
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The MENA region and Afghanistan have become increasingly important focal points among experts on National Security issues. While, these states have been prominent throughout the modern history of armed conflict because of their natural resources and their geo-political significance. They gained the attention of experts particularly in the final years of the Cold War following the Islamic Revolution in Iran and the Iran-Iraq conflict as well as the rise of international terrorism and more prominently the Soviet invasion of Afghanistan. This emphasis continued throughout the 1990s and gained prominence post 9/11 and the US invasion of Afghanistan and later the formulation of the Bush doctrine and the Iraq War. The Bush doctrine was the cornerstone of the early years of the Global War on Terror and aimed to provide a Grand Strategy to counter the new threat posed by violent non-state actors like terror groups to international security. The doctrine focused on US military intervention in states identified to be sympathetic to terrorist organizations and thus ‘rogue states.’
Some of the key principles of the strategy can be said to be pre-emptive military intervention to topple regimes friendly to terrorist groups and establish liberal democratic regimes. This strategy is based on the theory of democratic peace which holds that democracies have a lower probability of going to war with other democracies and thus, it was assumed that support of terrorism and religious extremism was a direct result of authoritarian rule and political oppression. Therefore, introduction of market based liberal democracy to the targeted states would lead to a decrease in sympathy for extremist sentiments and reduce international terrorism. However, it can be said that this strategy in retrospect suffers from some severe lacunae particularly in its validity as a cogent grand strategic doctrine. A grand strategy for a state can be defined as related to the long-term national interest of the state. Thus, for a cogent grand strategy, there should be an attempt to analyze from a long-term lens rather than formulate a doctrine for short term gains. This is the most important drawback of the Bush doctrine as a viable grand strategy. This is because to be long term, Grand Strategy has to be proactive and not reactive which in the case of the Bush doctrine was the latter as it was more a response to 9/11 rather than a long term solution to the problem of international terrorism which was a reality since the 1980s and had escalated in the 1990s with the 1993 World Trade Center Attack (also one of the targets of 9/11) and attacks on foreign missions of the United States.
Therefore, it would be wrong to say that international terrorism as a threat emerged as a direct result of 9/11 but 9/11 did start the Global War on Terrorism as the event directly had a paradigm shift on the perception of terrorist groups as a threat to national security. This is because terrorist groups are an example of violent non-state actors just like insurgent groups. The only difference being insurgents and terrorists being that terrorists not only attack high value political targets but also innocent citizens to send a political message while insurgent groups attack only high value targets associated with governments to create political change. However, differences in political messaging being also one of the major differences between insurgents and terrorists. This is because insurgents generally are dissatisfied with their government and want political change through violent means while terrorists have their own radical vision of government and often follow a larger meta-narrative of politics and society. Both insurgent groups and terrorist groups as seen during the Cold War can also be used by powerful states to fulfil objectives of foreign policy particularly while pursuing adversarial relations with other equally powerful states.
Thus, the non-recognition of these features by the Bush doctrine made the strategy very limited in its objectives and a sub-optimal response to the threat. One of the important features of the Bush doctrine also was its lack of recognition of sectarian conflict within religious extremists and ignorance of the support to terrorist groups more as state policy rather than ideological agreement. The doctrine also did not recognize political repression by authoritarian states based on sectarian lines and using religion as a political tool rather than an ideology. In fact, the only two proper examples of terrorist regimes would be the Taliban regime in Afghanistan and ISIL rule in parts of Iraq and Syria both of which were on the radical, hardline, internationalist, totalitarian and extremist understanding of religion. The latter is particularly important in this discussion as the emergence of ISIL was a direct effect of the fallout of the American withdrawal in Iraq in 2011. In contrast, Iran stands as more a theocratic authoritarian state which uses a sectarian idea of religion to reaffirm its authoritarian rule and supports violent non-state actors like terrorist groups and militias more as foreign policy goals against its adversaries rather than as supporting them as distinct allies in the regime.
While regimes under Saddam Hussein, Colonel Gaddafi and Bashar Al Assad were more despotic civilian dictatorships which may also cater to religious extremists to make them instruments for the security of their despotic regimes. All these different types of regimes including terrorist regimes, theocratic authoritarian regimes and despotic civilian dictatorships may pursue capabilities to produce Weapons of Mass Destruction which may include chemical weapons and may escalate to a nuclear arsenal for propagation of their despotic rule, to pursue sectarian conflict, elimination of insurgent groups, effective weapons in international armed conflict and particularly for terrorist regimes to escalate their attacks on civilian and political targets. The last of these is the most dangerous reality confronting the present international order and thus requires a strong military strategy to effectively counter it. While all these types of regimes engage in egregious violation of human rights which may escalate to crimes against humanity, their objectives and motivations behind them vary and while such acts should be rightly responded through effective military action focusing on R2P (responsibility to protect) doctrine, the strategies of response are different and must vary according to the type of actor performing the act. Oversimplification of such a complex reality made the Bush Doctrine extremely ineffective as a grand strategy.
However, what is more important with regards to the Bush doctrine is its implications for military actions focusing on counter-terrorism. Carl Von Clausewitz famously describes war as the continuation of politics by other means whereby force is used to bend the adversary to one’s will. But the great General also makes another important point i.e., military strategy is subservient to political objectives and the political will to fight. The assumptions of the Bush doctrine make the political objectives of military action extremely vague and thus make appropriate military responses difficult to effectively neutralize terrorist groups. An important example in this regard can be the American relationship with Pakistan during the start of the invasion of Afghanistan in 2001 and its transformation during the Obama administration when military action for counter-terrorism purposes was authorized in North-West Pakistan particularly in the Khyber-Pakhtunkhwa region and finally the US-Pakistan relationship post Operation Neptune Spear. The transformation of Pakistan as a key American ally in the War against Terror due to its strategic connection with Afghanistan to a potential candidate of distrust highlights the limitations of Bush doctrine. In fact, the serious lacunae of the Bush doctrine were reflected in the American perception of Pakistan as an ally. This is because while Pakistan may not be a theocratic state or a completely despotic dictatorship, it is nevertheless a state with authoritarian tendencies and has a connection with promoting and supporting violent non-state actors in South Asia and does promote extremist religious organizations in domestic politics often with the support of the Pakistani military establishment which has a record of subverting democratically elected regimes in the country. Pakistan also has a considerable history of proliferating dual use to nuclear technologies to states such as North Korea and Iran to fund its own nuclear weapons program.
Therefore, due to the sub-optimality of the Bush doctrine as a grand strategy, the American approach to the emergence of terrorist groups as a new and important national security threat remained inadequate particularly if understood with regards to its strategy of military action and its decision to select states to be key allies in this new and innovative campaign. However, the need to create an effective military strategy to counter international terrorism through military means is the need of the hour if the tendency of terrorist groups to act like militias and participate in civil wars and inter-state international conflict is considered and their use of the internet to promote their extremist ideologies and make gullible citizens unconnected with these actors conduct lone-wolf actions is considered. The threat of these actors developing nuclear weapons or at least having access to chemical and radiological weapons accentuate the present danger of international terrorism. Thus, to conclude, while it should be noted that the Bush doctrine was not an optimal grand strategic doctrine, nevertheless it was significant because it recognized international terrorism as a serious threat to global security and realized the need to create a robust military response to neutralize this threat which was a step in the right direction and is part of its enduring legacy. In fact, as a fitting ending to this article it will be correct to point out the struggles faced by the Afghan people after they failed to resist the temptations of choosing to replace the democracy endorsed by the Americans with the Taliban regime.