John Lewis Gaddis: Bush's Midcourse Corrections
John Lewis Gaddis, in Foreign Affairs (Jan.-Feb. 2005):
Second terms in the White House open the way for second thoughts. They provide the least awkward moment at which to replace or reshuffle key advisers. They lessen, although nothing can remove, the influence of domestic political considerations, since re-elected presidents have no next election to worry about. They enhance authority, as allies and adversaries learn--whether with hope or despair--with whom they will have to deal for the next four years. If there is ever a time for an administration to evaluate its own performance, this is it.
George W. Bush has much to evaluate: he has presided over the most sweeping redesign of U.S. grand strategy since the presidency of Franklin D. Roosevelt. The basis for Bush's grand strategy, like Roosevelt's, comes from the shock of surprise attack and will not change. None of F.D.R.'s successors, Democrat or Republican, could escape the lesson he drew from the events of December 7, 1941: that distance alone no longer protected Americans from assaults at the hands of hostile states. Neither Bush nor his successors, whatever their party, can ignore what the events of September 11, 2001, made clear: that deterrence against states affords insufficient protection from attacks by gangs, which can now inflict the kind of damage only states fighting wars used to be able to achieve. In that sense, the course for Bush's second term remains that of his first one: the restoration of security in a suddenly more dangerous world.
Setting a course, however, is only a starting point for strategies: experience always reshapes them as they evolve. Bush has been rethinking his strategy for some time now, despite his reluctance during the campaign to admit mistakes. With a renewed and strengthened electoral mandate, he will find it easier to make midcourse corrections. The best way to predict their extent is to compare what his administration intended with what it has so far accomplished. The differences suggest where changes will--or at least should--take place.
PRE-EMPTION AND PREVENTION
The narrowest gap between Bush's intentions and his accomplishments has to do with preventing another major attack on the United States. Of course, one could occur at any moment, even between the completion of this article and its publication. But the fact that more than three years have passed without such an attack is significant. Few Americans would have thought it likely in the immediate aftermath of September 11. The prevailing view then was that a terrorist offensive was underway, and that the nation would be fortunate to get through the next three months without a similar or more serious blow being struck.
Connecting causes with consequences is always difficult--all the more so when we know so little of Osama bin Laden's intentions or those of his followers. Perhaps al Qaeda planned no further attacks. Perhaps it anticipated that the United States would retaliate by invading Afghanistan and deposing the Taliban. Perhaps it foresaw U.S. military redeployments from Saudi Arabia to Afghanistan, Uzbekistan, Kyrgyzstan, and Iraq. Perhaps it expected a worldwide counterterrorist campaign to roll up substantial portions of its network. Perhaps it predicted that the Bush administration would abandon its aversion to nation building and set out to democratize the Middle East. Perhaps bin Laden's strategy allowed for all of this, but that seems unlikely. If it did not, then the first and most fundamental feature of the Bush strategy--taking the offensive against the terrorists and thereby surprising them--has so far accomplished its purposes.
A less obvious point follows concerning pre-emption and prevention, a distinction that arose from hypothetical hot-war planning during the Cold War. "Pre-emption" meant taking military action against a state that was about to launch an attack; international law and practice had long allowed such actions to forestall clear and immediately present dangers. "Prevention" meant starting a war against a state that might, at some future point, pose such risks. In mounting its post-September 11 offensive, the Bush administration conflated these terms, using the word "pre-emption" to justify what turned out to be a "preventive" war against Saddam Hussein's Iraq.
It did so on the grounds that, in a post-September 11 world, both terrorists and tyrants threatened the security of the United States. Al Qaeda could not have acted without the support and sanctuary the Taliban provided. But the traditional warnings governments had used to justify pre-emption--the massing of armed forces in such a way as to confirm aggressive intent--would not have detected the September 11 attacks before they took place. Decisions made, or at least circumstances tolerated, by a shadowy regime in a remote country halfway around the world produced an act of war that killed more Americans than the one committed six decades earlier by Japan, a state known at the time to pose the clearest and most present of dangers.