The Astonishing Success of Peacekeeping
The UN Program Deserves More Support—and Less Scorn—From America
As the nineteenth century ended, it seemed no one was safe from terrorist attack. In 1894 an Italian anarchist assassinated French President Sadi Carnot. In 1897 anarchists fatally stabbed Empress Elizabeth of Austria and killed Antonio C novas, the Spanish prime minister. In 1900 Umberto I, the Italian king, fell in yet another anarchist attack; in 1901 an American anarchist killed William McKinley, president of the United States. Terrorism became the leading preoccupation of politicians, police chiefs, journalists, and writers from Dostoevsky to Henry James. If in the year 1900 the leaders of the main industrial powers had assembled, most of them would have insisted on giving terrorism top priority on their agenda, as President Clinton did at the Group of Seven meeting after the June bombing of the U.S. military compound in Dhahran, Saudi Arabia.
From this perspective the recent upsurge of terrorist activity is not particularly threatening. According to the State Department's annual report on the subject, fewer people died last year in incidents of international terrorism (165) than the year before (314). Such figures, however, are almost meaningless, because of both the incidents they disregard and those they count. Current definitions of terrorism fail to capture the magnitude of the problem worldwide.
Terrorism has been defined as the substate application of violence or threatened violence intended to sow panic in a society, to weaken or even overthrow the incumbents, and to bring about political change. It shades on occasion into guerrilla warfare (although unlike guerrillas, terrorists are unable or unwilling to take or hold territory) and even a substitute for war between states. In its long history terrorism has appeared in many guises; today society faces not one terrorism but many terrorisms.
Since 1900, terrorists' motivation, strategy, and weapons have changed to some extent. The anarchists and the left-wing terrorist groups that succeeded them, down through the Red Armies that operated in Germany, Italy, and Japan in the 1970s, have vanished; if anything, the initiative has passed to the extreme right. Most international and domestic terrorism these days, however, is neither left nor right, but ethnic-separatist in inspiration. Ethnic terrorists have more staying power than ideologically motivated ones, since they draw on a larger reservoir of public support.
The greatest change in recent decades is that terrorism is by no means militants' only strategy. The many-branched Muslim Brotherhood, the Palestinian Hamas, the Irish Republican Army (IRA), the Kurdish extremists in Turkey and Iraq, the Tamil Tigers of Sri Lanka, the Basque Homeland and Liberty (ETA) movement in Spain, and many other groups that have sprung up in this century have had political as well as terrorist wings from the beginning. The political arm provides social services and education, runs businesses, and contests elections, while the "military wing" engages in ambushes and assassinations. Such division of labor has advantages: the political leadership can publicly disassociate itself when the terrorists commit a particularly outrageous act or something goes wrong. The claimed lack of control can be quite real because the armed wing tends to become independent; the men and women with the guns and bombs often lose sight of the movement's wider aims and may end up doing more harm than good.
Terrorist operations have also changed somewhat. Airline hijackings have become rare, since hijacked planes cannot stay in the air forever and few countries today are willing to let them land, thereby incurring the stigma of openly supporting terrorism. Terrorists, too, saw diminishing returns on hijackings. The trend now seems to be away from attacking specific targets like the other side's officials and toward more indiscriminate killing. Furthermore, the dividing line between urban terrorism and other tactics has become less distinct, while the line between politically motivated terrorism and the operation of national and international crime syndicates is often impossible for outsiders to discern in the former Soviet Union, Latin America, and other parts of the world. But there is one fundamental difference between international crime and terrorism: mafias have no interest in overthrowing the government and decisively weakening society; in fact, they have a vested interest in a prosperous economy.
Misapprehensions, not only semantic, surround the various forms of political violence. A terrorist is not a guerrilla, strictly speaking. There are no longer any guerrillas, engaging in Maoist-style liberation of territories that become the base of a counter-society and a regular army fighting the central government -- except perhaps in remote places like Afghanistan, the Philippines, and Sri Lanka. The term "guerrilla" has had a long life partly because terrorists prefer the label, for its more positive connotations. It also persists because governments and media in other countries do not wish to offend terrorists by calling them terrorists. The French and British press would not dream of referring to their countries' native terrorists by any other name but call terrorists in other nations militants, activists, national liberation fighters, or even "gun persons."
The belief has gained ground that terrorist missions by volunteers bent on committing suicide constitute a radical new departure, dangerous because they are impossible to prevent. But that is a myth, like the many others in which terrorism has always been shrouded. The bomber willing and indeed eager to blow himself up has appeared in all eras and cultural traditions, espousing politics ranging from the leftism of the Baader-Meinhof Gang in 1970s Germany to rightist extremism. When the Japanese military wanted kamikaze pilots at the end of World War II, thousands of volunteers rushed to offer themselves. The young Arab bombers on Jerusalem buses looking to be rewarded by the virgins in Paradise are a link in an old chain.
State-sponsored terrorism has not disappeared. Terrorists can no longer count on the Soviet Union and its Eastern European allies, but some Middle Eastern and North African countries still provide support. Tehran and Tripoli, however, are less eager to argue that they have a divine right to engage in terrorist operations outside their borders; the 1986 U.S. air strike against Libya and the various boycotts against Libya and Iran had an effect. No government today boasts about surrogate warfare it instigates and backs.
On the other hand, Sudan, without fanfare, has become for terrorists what the Barbary Coast was for pirates of another age: a safe haven. Politically isolated and presiding over a disastrous economy, the military government in Khartoum, backed by Muslim leaders, believes that no one wants to become involved in Sudan and thus it can get away with lending support to terrorists from many nations. Such confidence is justified so long as terrorism is only a nuisance. But if it becomes more than that, the rules of the game change, and both terrorists and their protectors come under great pressure.
OPPORTUNITIES IN TERRORISM
History shows that terrorism more often than not has little political impact, and that when it has an effect it is often the opposite of the one desired. Terrorism in the 1980s and 1990s is no exception. The 1991 assassination of Rajiv Gandhi as he campaigned to retake the prime ministership neither hastened nor inhibited the decline of India's Congress Party. Hamas' and Hezbollah's stepped-up terrorism in Israel undoubtedly influenced the outcome of Israeli elections in May, but while it achieved its immediate objective of setting back the peace process on which Palestine Authority President Yasir Arafat has gambled his future, is a hard-line Likud government really in these groups' interests? On the other side, Yigal Amir, the right-wing orthodox Jewish student who assassinated Prime Minister Yitzhak Rabin last fall because he disapproved of the peace agreement with the Palestinians, might well have helped elect Rabin's dovish second-in-command, Shimon Peres, to a full term had the Muslim terrorists not made Israeli security an issue again.
Terrorists caused disruption and destabilization in other parts of the world, such as Sri Lanka, where economic decline has accompanied the war between the government and the Tamil Tigers. But in Israel and in Spain, where Basque extremists have been staging attacks for decades, terrorism has had no effect on the economy. Even in Algeria, where terrorism has exacted the highest toll in human lives, Muslim extremists have made little headway since 1992-93, when many predicted the demise of the unpopular military regime.
Some argue that terrorism must be effective because certain terrorist leaders have become president or prime minister of their country. In those cases, however, the terrorists had first forsworn violence and adjusted to the political process. Finally, the common wisdom holds that terrorism can spark a war or, at least, prevent peace. That is true, but only where there is much inflammable material: as in Sarajevo in 1914, so in the Middle East and elsewhere today. Nor can one ever say with certainty that the conflagration would not have occurred sooner or later in any case.
Nevertheless, terrorism's prospects, often overrated by the media, the public, and some politicians, are improving as its destructive potential increases. This has to do both with the rise of groups and individuals that practice or might take up terrorism and with the weapons available to them. The past few decades have witnessed the birth of dozens of aggressive movements espousing varieties of nationalism, religious fundamentalism, fascism, and apocalyptic millenarianism, from Hindu nationalists in India to neofascists in Europe and the developing world to the Branch Davidian cult of Waco, Texas. The earlier fascists believed in military aggression and engaged in a huge military buildup, but such a strategy has become too expensive even for superpowers. Now, mail-order catalogs tempt militants with readily available, far cheaper, unconventional as well as conventional weapons -- the poor man's nuclear bomb, Iranian President Ali Akbar Hashemi Rafsanjani called them.
In addition to nuclear arms, the weapons of mass destruction include biological agents and man-made chemical compounds that attack the nervous system, skin, or blood. Governments have engaged in the production of chemical weapons for almost a century and in the production of nuclear and biological weapons for many decades, during which time proliferation has been continuous and access ever easier.ffi The means of delivery -- ballistic missiles, cruise missiles, and aerosols -- have also become far more effective. While in the past missiles were deployed only in wars between states, recently they have played a role in civil wars in Afghanistan and Yemen. Use by terrorist groups would be but one step further.
Until the 1970s most observers believed that stolen nuclear material constituted the greatest threat in the escalation of terrorist weapons, but many now think the danger could lie elsewhere. An April 1996 Defense Department report says that "most terrorist groups do not have the financial and technical resources to acquire nuclear weapons but could gather materials to make radiological dispersion devices and some biological and chemical agents." Some groups have state sponsors that possess or can obtain weapons of the latter three types. Terrorist groups themselves have investigated the use of poisons since the nineteenth century. The Aum Shinrikyo cult staged a poison gas attack in March 1995 in the Tokyo subway; exposure to the nerve gas sarin killed ten people and injured 5,000. Other, more amateurish attempts in the United States and abroad to experiment with chemical substances and biological agents for use in terrorism have involved the toxin that causes botulism, the poisonous protein rycin (twice), sarin (twice), bubonic plague bacteria, typhoid bacteria, hydrogen cyanide, vx (another nerve gas), and possibly the Ebola virus.
TO USE OR NOT TO USE?
If terrorists have used chemical weapons only once and nuclear material never, to some extent the reasons are technical. The scientific literature is replete with the technical problems inherent in the production, manufacture, storage, and delivery of each of the three classes of unconventional weapons.
The manufacture of nuclear weapons is not that simple, nor is delivery to their target. Nuclear material, of which a limited supply exists, is monitored by the U.N.-affiliated International Atomic Energy Agency. Only governments can legally procure it, so that even in this age of proliferation investigators could trace those abetting nuclear terrorists without great difficulty. Monitoring can overlook a more primitive nuclear weapon: nonfissile but radioactive nuclear material. Iranian agents in Turkey, Kazakhstan, and elsewhere are known to have tried to buy such material originating in the former Soviet Union.
Chemical agents are much easier to produce or obtain but not so easy to keep safely in stable condition, and their dispersal depends largely on climatic factors. The terrorists behind last year's attack in Tokyo chose a convenient target where crowds of people gather, but their sarin was apparently dilute. The biological agents are far and away the most dangerous: they could kill hundreds of thousands where chemicals might kill only thousands. They are relatively easy to procure, but storage and dispersal are even trickier than for nerve gases. The risk of contamination for the people handling them is high, and many of the most lethal bacteria and spores do not survive well outside the laboratory. Aum Shinrikyo reportedly released anthrax bacteria -- among the most toxic agents known -- on two occasions from a building in Tokyo without harming anyone.
Given the technical difficulties, terrorists are probably less likely to use nuclear devices than chemical weapons, and least likely to attempt to use biological weapons. But difficulties could be overcome, and the choice of unconventional weapons will in the end come down to the specialties of the terrorists and their access to deadly substances.
The political arguments for shunning unconventional weapons are equally weighty. The risk of detection and subsequent severe retaliation or punishment is great, and while this may not deter terrorists it may put off their sponsors and suppliers. Terrorists eager to use weapons of mass destruction may alienate at least some supporters, not so much because the dissenters hate the enemy less or have greater moral qualms but because they think the use of such violence counterproductive. Unconventional weapon strikes could render whole regions uninhabitable for long periods. Use of biological arms poses the additional risk of an uncontrollable epidemic. And while terrorism seems to be tending toward more indiscriminate killing and mayhem, terrorists may draw the line at weapons of super-violence likely to harm both foes and large numbers of relatives and friends -- say, Kurds in Turkey, Tamils in Sri Lanka, or Arabs in Israel.
Furthermore, traditional terrorism rests on the heroic gesture, on the willingness to sacrifice one's own life as proof of one's idealism. Obviously there is not much heroism in spreading botulism or anthrax. Since most terrorist groups are as interested in publicity as in violence, and as publicity for a mass poisoning or nuclear bombing would be far more unfavorable than for a focused conventional attack, only terrorists who do not care about publicity will even consider the applications of unconventional weapons.
Broadly speaking, terrorists will not engage in overkill if their traditional weapons -- the submachine gun and the conventional bomb -- are sufficient to continue the struggle and achieve their aims. But the decision to use terrorist violence is not always a rational one; if it were, there would be much less terrorism, since terrorist activity seldom achieves its aims. What if, after years of armed struggle and the loss of many of their militants, terrorist groups see no progress? Despair could lead to giving up the armed struggle, or to suicide. But it might also lead to a last desperate attempt to defeat the hated enemy by arms not tried before. As one of Racine's heroes said of himself, their "only hope lies in their despair."
Terrorist groups traditionally contain strong quasi-religious, fanatical elements, for only total certainty of belief (or total moral relativism) provides justification for taking lives. That element was strong among the prerevolutionary Russian terrorists and the Romanian fascists of the Iron Guard in the 1930s, as it is among today's Tamil Tigers. Fanatical Muslims consider the killing of the enemies of God a religious commandment, and believe that the secularists at home as well as the State of Israel will be annihilated because it is Allah's will. Aum Shinrikyo doctrine held that murder could help both victim and murderer to salvation. Sectarian fanaticism has surged during the past decade, and in general, the smaller the group, the more fanatical.
As humankind approaches the end of the second millennium of the Christian era, apocalyptic movements are on the rise. The belief in the impending end of the world is probably as old as history, but for reasons not entirely clear, sects and movements preaching the end of the world gain influence toward the end of a century, and all the more at the close of a millennium. Most of the preachers of doom do not advocate violence, and some even herald a renaissance, the birth of a new kind of man and woman. Others, however, believe that the sooner the reign of the Antichrist is established, the sooner this corrupt world will be destroyed and the new heaven and earth foreseen by St. John in the Book of Revelation, Nostradamus, and a host of other prophets will be realized.ff
Extremist millenarians would like to give history a push, helping create world-ending havoc replete with universal war, famine, pestilence, and other scourges. It is possible that members of certain Christian and Jewish sects that believe in Armageddon or Gog and Magog or the Muslims and Buddhists who harbor related extreme beliefs could attempt to play out a doomsday scenario. A small group of Israeli extremists, for instance, firmly believes that blowing up Temple Mount in Jerusalem would bring about a final (religious) war and the beginning of redemption with the coming of the Kingdom of God. The visions of Shoko Asahara, the charismatic leader of Aum Shinrikyo, grew increasingly apocalyptic, and David Koresh proclaimed the Last Day's arrival in the Branch Davidians' 1994 confrontation with Bureau of Alcohol, Tobacco, and Firearms agents.
Those who subscribe to such beliefs number in the hundreds of thousands and perhaps millions. They have their own subcultures, produce books and CDs by the thousands, and build temples and communities of whose existence most of their contemporaries are unaware. They have substantial financial means at their disposal. Although the more extreme apocalyptic groups are potentially terrorist, intelligence services have generally overlooked their activities; hence the shock over the subway attack in Tokyo and Rabin's assassination, to name but two recent events.
Apocalyptic elements crop up in contemporary intellectual fashions and extremist politics as well. For instance, extreme environmentalists, particularly the so-called restoration ecologists, believe that environmental disasters will destroy civilization as we know it -- no loss, in their view -- and regard the vast majority of human beings as expendable. From such beliefs and values it is not a large step to engaging in acts of terrorism to expedite the process. If the eradication of smallpox upset ecosystems, why not restore the balance by bringing back the virus? The motto of Chaos International, one of many journals in this field, is a quotation from Hassan I Sabbah, the master of the Assassins, a medieval sect whose members killed Crusaders and others in a "religious" ecstasy; everything is permitted, the master says. The premodern world and postmodernism meet at this point.
Scanning the contemporary scene, one encounters a bewildering multiplicity of terrorist and potentially terrorist groups and sects. The practitioners of terrorism as we have known it to this point were nationalists and anarchists, extremists of the left and the right. But the new age has brought new inspiration for the users of violence along with the old.
In the past, terrorism was almost always the province of groups of militants that had the backing of political forces like the Irish and Russian social revolutionary movements of 1900. In the future, terrorists will be individuals or like-minded people working in very small groups, on the pattern of the technology-hating Unabomber, who apparently worked alone sending out parcel bombs over two decades, or the perpetrators of the 1995 bombing of the federal building in Oklahoma City. An individual may possess the technical competence to steal, buy, or manufacture the weapons he or she needs for a terrorist purpose; he or she may or may not require help from one or two others in delivering these weapons to the designated target. The ideologies such individuals and mini-groups espouse are likely to be even more aberrant than those of larger groups. And terrorists working alone or in very small groups will be more difficult to detect unless they make a major mistake or are discovered by accident.
Thus at one end of the scale, the lone terrorist has appeared, and at the other, state-sponsored terrorism is quietly flourishing in these days when wars of aggression have become too expensive and too risky. As the century draws to a close, terrorism is becoming the substitute for the great wars of the 1800s and early 1900s.
Proliferation of the weapons of mass destruction does not mean that most terrorist groups are likely to use them in the foreseeable future, but some almost certainly will, in spite of all the reasons militating against it. Governments, however ruthless, ambitious, and ideologically extreme, will be reluctant to pass on unconventional weapons to terrorist groups over which they cannot have full control; the governments may be tempted to use such arms themselves in a first strike, but it is more probable that they would employ them in blackmail than in actual warfare. Individuals and small groups, however, will not be bound by the constraints that hold back even the most reckless government.
Society has also become vulnerable to a new kind of terrorism, in which the destructive power of both the individual terrorist and terrorism as a tactic are infinitely greater. Earlier terrorists could kill kings or high officials, but others only too eager to inherit their mantle quickly stepped in. The advanced societies of today are more dependent every day on the electronic storage, retrieval, analysis, and transmission of information. Defense, the police, banking, trade, transportation, scientific work, and a large percentage of the government's and the private sector's transactions are on-line. That exposes enormous vital areas of national life to mischief or sabotage by any computer hacker, and concerted sabotage could render a country unable to function. Hence the growing speculation about infoterrorism and cyberwarfare.
An unnamed U.S. intelligence official has boasted that with $1 billion and 20 capable hackers, he could shut down America. What he could achieve, a terrorist could too. There is little secrecy in the wired society, and protective measures have proved of limited value: teenage hackers have penetrated highly secret systems in every field. The possibilities for creating chaos are almost unlimited even now, and vulnerability will almost certainly increase. Terrorists' targets will change: Why assassinate a politician or indiscriminately kill people when an attack on electronic switching will produce far more dramatic and lasting results? The switch at the Culpeper, Virginia, headquarters of the Federal Reserve Board's electronic network, which handles all federal funds and transactions, would be an obvious place to hit. If the new terrorism directs its energies toward information warfare, its destructive power will be exponentially greater than any it wielded in the past -- greater even than it would be with biological and chemical weapons.
Still, the vulnerability of states and societies will be of less interest to terrorists than to ordinary criminals and organized crime, disgruntled employees of big corporations, and, of course, spies and hostile governments. Electronic thieves, whether engaged in credit card fraud or industrial espionage, are part of the system, using it rather than destroying it; its destruction would cost them their livelihood. Politically motivated terrorist groups, above all separatists bent on establishing states of their own, have limited aims. The Kurdish Workers Party, the IRA, the Basque ETA, and the Tamil Tigers want to weaken their enemies and compel them to make far-reaching concessions, but they cannot realistically hope to destroy them. It is also true, however, that terrorist groups on the verge of defeat or acting on apocalyptic visions may not hesitate to apply all destructive means at their disposal.
All that leads well beyond terrorism as we have known it. New definitions and new terms may have to be developed for new realities, and intelligence services and policymakers must learn to discern the significant differences among terrorists' motivations, approaches, and aims. The Bible says that when the Old Testament hero Samson brought down the temple, burying himself along with the Philistines in the ruins, "the dead which he slew at his death were more than he slew in his life." The Samsons of a society have been relatively few in all ages. But with the new technologies and the changed nature of the world in which they operate, a handful of angry Samsons and disciples of apocalypse would suffice to cause havoc. Chances are that of 100 attempts at terrorist superviolence, 99 would fail. But the single successful one could claim many more victims, do more material damage, and unleash far greater panic than anything the world has yet experienced.’
ffi Science fiction writers produced chemical weapons even earlier. In Jules Verne's The Begum's Fortune, a (German) scientist aims to wipe out the 250,000 inhabitants of (French) Franceville with one grenade of what he calls carbon acid gas, shot from a supergun.