Charles Duelfer | The Search For Truth In Iraq

Iran Nuclear Intel Dwarfs the Data on Iraq

Comparisons between the intelligence assessments of nuclear weapons activities on the part of Saddam’s Iraq and today’s Iran are misleading.

Certainly the pre-war intelligence assessments concerning Saddam’s nuclear weapons programs were wildly wrong.  However, they were produced from astonishingly small amounts of data, using terribly flawed analytic tradecraft to support a single hypothesis—that Saddam maintained an on-going effort to develop nuclear weapons.  From past experience with Saddam, it was expected that he would build nuclear weapons at the earliest opportunity and, therefore, any data the intelligence community received was tied to this notion.  Information was sparse and sometimes bogus.  The tendency was to see the paucity of data as a consequence of great deception on the part of Saddam rather than (as we later learned) a consequence of a decision on his part to defer a nuclear effort until such time as the sanctions had been lifted and the international community otherwise occupied.

In the case of Iran, there are, unquestionably, substantial nuclear infrastructure and developments that Saddam never had.  Iran has an extensive nuclear power program and nuclear enrichment efforts that are declared and plain to see.  They also have a long range ballistic missile program that is clear and observable to all.  The uncertainty concerns whether Tehran has clandestine efforts to design and build a nuclear weapon that can go on one of their missiles.  Whether by intent or not, the declared path that Iran is following (developing enrichment capacity and missiles) will substantially reduce their lead time to building an actual weapon–if they have not already made that decision.  The potential for Iran to produce a weapon in relatively short order is growing—even excluding the substantial concerns that they have worked on weapons design and may be continuing such efforts now.

This is the rub.  Countries concerned about an Iranian nuclear weapon are not going to be able to be patient and wait until, as some have suggested, “it be proved through the analysis of current, solid information—not recycled, discredited data.”  Countries who see an Iran nuclear weapon as a severe threat will have to either convince themselves that Iran is not going nuclear (Iran could facilitate that if it chose to cease enrichment activities) or, they will have to do something to prevent it (military action), or they will have to decide to live with it.  All are grindingly tough choices.

And, the data that supported the concern about Iran’s designing a weapon is not trivial, or, as one former IAEA inspector casts it, “recycled, discredited.”   The 2007 National Intelligence Estimate noted that weaponization efforts had apparently been suspended or halted in 2003.  That does not mean such a halt was permanent.  Later data shared with the IAEA suggests that the capacity to conduct further work is certainly possible and there were activities which in fact suggested such weapons development work might be continuing.  Iran has refused to address these questions put to it by the IAEA.  It is important to note that the burden of proof is not on the IAEA in this dynamic.

It may well be that Iran has not taken a decision to build a nuclear weapon.  It may be that they have chosen simply to be in a position to build one on short notice.  The intelligence community will never be able to get “current solid information” on Tehran’s intentions.  Yet countries will have to make extraordinary decisions about how long to let Iran’s work continue before they commit to one of the three positions cited above.  The IAEA has been extraordinarily helpful in illuminating the circumstances in Iran.  It is not their job, however, to prove that Iran has a nuclear weapon program.  They can only raise questions and evaluate the information they receive from Tehran.

The circumstances are entirely different from Iraq.  There is a broad factual basis of Iranian capacity that dwarfs that of Saddam in 2002.  Now, a decade later, Tehran will have learned from Saddam’s experiences.  And, given the pace of developments in Iran, it is pretty certain that some countries will have to make tough decisions in 2012 about just how much risk they are willing to accept.

 

 

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The Next Year in Iraq — More Chaos

The bombings in Iraq this week point to two clear aspects of the situation in Iraq. One, the government can not provide security. Second, there are powerful forces who are not committed to the current government. These two points are obvious, but over the next year there is no “democratic” scenario that can fix or control them. What’s worse is that one element that has been relatively stable, the views and influence of Ayatollah Sistani, will likely drop from the scene as he comes to the end of his natural life. The balance of between the influence of Iran, Moqtadr al Sadr, and other parties are impossible to predict. But more instability will result, not less. It may be a grim prediction, but it is not only likely that Sistani may pass from the scene (he is old), but I would not want to hold Maliki’s life insurance policy. Prospects for chaos in Iraq are high. And, to the extent Iraq is in chaos, it takes attention away from Iran. Decision makers in Iran may well see it in their interest to respond to pressure on their government (sanctions and otherwise) to pour oil on the fires in next door Iraq. Even if Washington had any idea what to do, there are few levers for the US to act. For Washington, events in Iraq and, increasingly the whole region, are out of our control. Increasingly, the Saudis and others in the region will be acting with greater effect than we can. In Washington, hoards of people have their hands on the steering wheel (or provide commentary like this), but it is not connected to anything.

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Closing UK Embassy in Tehran–There is a cost…

Closing the respective embassies in Tehran and London may have been inevitable for political reasons, but there is a cost to this action.  Two governments that already have a poor understanding of one another will now have even less contact and data to base critical decisions.  Having examined in depth the previous case of Iraq and the United States, it is clear that massive miscalculations based on gross misperceptions on both sides contributed to the Iraq tragedy.  The absence of an embassy drastically reduced the number of officials who had any real grasp of the other government.  There was astonishing ignorance at senior levels and costly errors were made.  It may feel good to slam the embassy door shut, but there is a loss of knowledge and understanding that can be critical. The United States had full diplomatic relations with Saddam’s Iraq from 1984 until the invasion of Kuwait in 1990.  A cadre of diplomats, businessmen, and academics had regular dialogue—formal and informal–with real Iraqis in both Washington and Baghdad.  The former Iraqi Ambassador, Nizar Hamdoon (who died in a New York hospital in June 2003), was widely known and could interpret Baghdad to audiences in the US.  Perhaps more importantly, he interpreted Washington to Baghdad.  On both sides, during the 1980’s there were people who knew each other and had a tactile sense for the realities of both countries.  There were people who had a sense of the real dynamics in each country. However, from 1991 until 2003, relations were cut.  During that time, individuals with direct knowledge moved on.  During that period the misperceptions of each government grew uncorrected by the regular direct contact of officials when diplomatic relations are ongoing.  Consequently, politically expedient images of the opposing country grew unmodified by diplomats charged with reporting from their assigned posts.  In Washington, Saddam became a one-dimensional cartoonish image—a crazed monomaniacal ruthless dictator—end of story.   Of course he was a dangerous dictator, but he also ruled a complex country and produced important results inside Iraq.  Such data were unexamined but would have provided a fuller image of the problem subsequently confronted when he was removed. Likewise, and in many ways more challenging, was the task for Iraqis to explain Washington to Saddam.  Pity the poor Iraqi who had to explain how decisions were made in Washington—Congress, lobbyists, journalists and, yes, to some extent the president all have their say. We learned from debriefing Saddam just how malformed his model of Washington was.  His limited frame of reference provided him only a very distorted image of Washington decision processes. Even Tariq Aziz, the relatively worldly former Deputy Prime Minister asked me informally in 1998, “What is an intern?”  This was in the context of the Monica Lewinsky scandal then-breaking in Washington.  Try to explain to Saddam that the last super-power is tied up in knots over some young inconsequential intern. Absent contrary information and views, Saddam sustained a model of Washington that was based upon his experiences.  For example, he assumed presidents could act with far more freedom than is the reality.  He considered that President Bush, the son of the former president would be acting based on familial objectives.  And he had a simplistic notion of the influence of Israel on Washington’s behavior.  Baghdad also assumed that the United States knew more than we really did.  Their default assumption was that we must know the true extent of Iraq WMD programs.  After all, the US has a massive intelligence system with unknown technical capacities.  So Saddam evaluated US statements and actions assuming Washington was aware of his WMD status. And in Washington, assumptions about Saddam became progressively simplified as direct access atrophied.  The influence of external opposition groups became disproportionate because there was so little access to Iraqis living inside Iraq.  The repetition of the horrors of the regime dominated.  However, it would have been useful to examine the question, “What good things has Saddam done in Iraq?”  Whilst Iraq had an active embassy in Washington, it reminded interlocutors that there was a broader picture to the Saddam regime. There is a natural tendency to simplify the image of opponents.  There is a natural tendency to focus on the particularly absurd or horrible.  Media reporting focuses attention on such.  Often it is only embassy reporting that provides real context.  And they provide a pool of officials that have first-hand knowledge of the regime and that can be invaluable to decision-makers.  It was the Iraq embassy in Washington that would explain to Baghdad the difference between the Hollywood image of the United States and reality.  And, an operating American embassy in Baghdad would have been more attuned to the stability that, albeit at great cost, Saddam enforced on Iraq. Today, we risk becoming more ignorant of the dynamics inside Iran just at the time when progressively more critical decisions may be taken.  Maybe this is always the case, but we should remind ourselves that the uncertainty band of our knowledge is very large may become larger still.

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Intelligence Funding Trends

Below are two charts on intelligence funding I did for an article in National Interest . These show funding trends (in constant 2012 dollars) for the National Intelligence Programs budget (NIP) and the NIP as a percent of overall DOD budget (where the NIP is cached). These data are pretty accurate and the trends reflect growing resource commitment to national intelligence. This is a trend which should continue given the types of threat we will face in future. The risks (indeed attacks) we are subject too will be less kinetic and more virtual. They will be things that the intelligence community is more adept at understanding and, indeed, thwarting. The necessity for massive investment in defense hardware will trend down. This will be a trend that lobbyists in Washington will fight, but looking ahead, the past decade with its trillion dollar expenses in Iraq and Afghanistan, is not a good indicator for future needs. The Arab awakening and Chinese penetrations of our communications, and sensitive commercial data are more representative of things that will affect our future. Looking ahead, the NIP funding line should hold its own and grow as a portion of the overall defense budget.

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The Real Change in Iraq

President Obama is doing the equivalent of the “Moonwalk” out of Iraq. There have been negotiations concerning the potential retention of US forces, but without success. It is not clear either side would welcome success. Maliki has no use for the US so long as Iran and its surrogates dial down the violence (which they have apparently done recently just as they did the last time there was a sensitive moment in the process of the US exiting Iraq). For President Obama, faced with massive budget problems, it would be a fiscal calamity if the we now had to sustain forces in Iraq…and to what end. They have sat in Iraq doing virtually nothing except consuming US tax dollars at a high rate….and absorbing attacks to which they cannot respond.

So the US is virtually out of Iraq. What matters now, and it matters a lot, is what takes place amongst the Shia across Iran and Iraq. The pre-eminent Shia Cleric in Iraq is Ayatollah Sistani who has, since the US invasion, assumed the lead spiritual and to a certain extent secular opinion leader. All leaders of all parties in Iraq recognize his influence and take care to attend to his views from the holy city of Najaf. For Americans, it is easy to forget that he is a dominant figure among all Shia, including in Iran. Clerics in Iran, view his position in Najaf with some envy. Their closest ally in Iraq is Moqtadr Sadr who has been regularly characterised as a “Firebrand” and runs his own militia in Iraq. Prime Minister Maliki is now beholden to Moqtadr since his ruling coalition depends upon the seats in Parliment Moqtadr controls. Moqtadr, who is more frequently a resident of Iran than Iraq, fills a need for the many unemployed un-empowered young Shia men of Iraq. And he derives funding and assistance from the Clerics of Tehran.

The major, pending change in Iraq, is not the withdrawal of US troops, but what happens when Ayatollah Sistani dies? The spiritual center of Iraq will be open and the Clerics in Iran will be making a strong play for that. There will be a power struggle that is not obvious to those who focus on the power politics we recognize in Baghdad. But the power struggle will be much more important to the overall balance between Iraq and Iran and depending how it turns out, radical changes may happen in Iraq…none that will be seen as good from our perspective. Get ready for another round of sectarian warfare.

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