Terrorism: Why 'War' Is Not Enough

Book Review, NationalJournal.com

The United States is now "at war" against terrorism -- but what, exactly, does that mean?

In "Terrorism and U.S. Foreign Policy," an in-depth look at U.S. counterterrorism efforts that was published in May, the CIA's Paul Pillar warns that such a war poses countless complications. Foreign policy can rarely be distilled down to absolutes, and Pillar warns that "a simple, absolute, confrontational approach" can actually work against U.S. interests, including the counterterrorism efforts themselves.

"If counterterrorism is conceived as a war," Pillar writes, "it is a small step to conclude that in this war there is no substitute for victory and thus no room for compromise."

That's not to say Pillar, who used to serve as deputy chief of the CIA's Counterterrorist Center and is still with the agency, would oppose the current crusade. It must be stressed that his book predates the recent attacks in New York and Washington, and many of his recommendations (uncover and disrupt terrorists' infrastructure, collaborate more closely with allies, etc.) are in keeping with the efforts underway. But Pillar's primary point is that we need more than a "war" -- success will depend on making counterterrorism "an integral part of broader foreign policy."

That means making unpleasant choices. Pillar concedes that for most terrorists (and he includes Osama bin Laden's al Qaida in this group) the U.S. goal should be eradication, but he stresses that in some cases it is the underlying conflict that must instead be addressed -- often by involving the terrorists as partners in the process. He also argues that the civil liberties of U.S. citizens are not the only competing interest that must be weighed; foreign policy concerns should also influence how (and how aggressively) the United States pursues different terrorist threats.

And just as our counterterrorism efforts can impact broader foreign policy, Pillar writes, the United States' image and actions around the world clearly influence the types and intensity of terrorist threats the country must face (bin Laden's fury over U.S. troops in Saudi Arabia is just one high-profile example). While he does not suggest that terrorist threats be allowed to drive U.S. actions abroad, Pillar contends that it would be foolish not to think through such implications and prepare for them.

Pillar goes out of his way to stress that there have been "remarkable" successes in the U.S. fight against terrorism, and he rightly notes that -- the massive World Trade Center casualties aside -- many, many lives "have unquestionably been saved" in recent years. But he makes it clear that a successful "war" will require the reassessment of virtually every aspect of U.S. policies.

Terrorism and U.S. Foreign Policy
By Paul R. Pillar
ISBN 0815700040
Brookings Institution Press
272 pp.