How a Great Power Falls Apart
Decline Is Invisible From the Inside
Republicans and Democrats each share some of the blame for the situation in Iraq -- the former for the way in which the United States entered the country and the latter for the way in which it left. It was only between 2007 and 2009 that the United States had a coherent strategy in Iraq, matched with the right leadership and the necessary resources. The current turmoil dates back to just after that period, to 2010, after Iraq's second post-Saddam national election.
At that time, some senior officials argued that the United States should uphold the constitutionally mandated right of the winning bloc, Iraqiya, headed by Ayad Allawi, to have the first go at trying to form a government. They maintained that the United States should actively help broker an agreement among Iraqi elites to form the new government and warned of the already apparent autocratic tendencies of Nouri al-Maliki, the incumbent prime minister.
Other officials argued that Maliki, despite his narrow electoral defeat, was the only conceivable Shia leader who could hold the position. He was also, they said, a friend of the United States who would agree to allow the United States to maintain a small contingent of forces in Iraq after 2011, when the existing agreement between the two countries expired. In the end, it was Iran that stepped in and, by pressuring the Sadrists to support Maliki, secured him a second premiership. The price Iran extracted from Maliki was his support for the removal of all U.S. forces.
Since 2010, Maliki has consolidated his power by targeting his political rivals, subverting the judiciary and independent government commissions, reneging on his promises to the Sunni tribal leaders who had helped him fight al Qaeda, and politicizing the security forces that the United States invested so much in training. He also mishandled the yearlong protests against his government that erupted in Sunni areas at the end of 2012, following the souring of relations between him and Rafi al-Issawi, the highly respected minister of finance. His forces attacked protesters in Hawija, killing 50. Then, in December 2013, he sent troops into western Anbar to attack the desert camps of a Sunni radical group, the Islamic State of Iraq and al-Sham (ISIS). Following the death of the Iraqi general leading the operation, Maliki ordered his troops into the cities of Anbar province to close down all protest sites.
Maliki’s moves seemed to be tactical successes in that they strengthened his regime. But they have been revealed to be strategic disasters, since they provoked a backlash that weakened the state. With the ISIS takeover of cities in the provinces of Anbar, Ninewa, and Salah al-Din, that reality has been made clear. Iraqi security forces, which outnumber ISIS by around a hundred to one, deserted and fled their positions as ISIS advanced; soldiers’ morale was low and a number of senior officers owed their positions to bribes and political affiliation rather than to competence. Sunni tribes, which previously had turned against the forerunner of ISIS, al Qaeda in Iraq, have this time either fled, remained neutral, or backed the militants. Given their sense of disenfranchisement, they do not trust Maliki's government to provide for them or to protect them. Some have concluded that ISIS is the lesser of two evils. Sunni clerics in Iraq, along with regional media, are now referring to the Sunni "revolt" against Maliki's government.
ISIS’ victories are a result of internal divides, rising sectarianism, state failure, and geopolitical competition in two neighboring countries. In one of his recent speeches, Abu Bakr al-Baghdadi, the leader of ISIS, called on Sunni Muslims to join his organization to fight the Shia and establish a caliphate, which would remove the borders between Muslim lands that were demarcated by colonial powers. “Give up corrupt nationalism,” he urged, “and join the nation of Islam.”
But it is not the borders that are the root of the problems of these countries. It is the political leadership, which has failed to develop inclusive and robust states. Grievances against the governments of Maliki and Bashar al-Assad in Syria have created the environment in which ISIS can prosper. And, ironically, although the ISIS has railed against national divisions, the tensions between its international jihadist agenda and the nationalist agendas of most Sunni groups will inevitably create friction and infighting. For now, though, ISIS will find plenty of Sunnis willing to join the fray.
Meanwhile, facing the shock caused by the collapse of the Iraqi army in Mosul, Shia have turned to Ayatollah Ali al-Sistani for guidance. Sistani issued a fatwa calling on Iraqis to join the security forces in the fight against ISIS. Despite Sistani’s statement that the fatwa was intended for Sunni and Shia civilians alike, Shia militias are using it as an occasion for sectarian mobilization.
In the ongoing turmoil, the Kurds have taken the contested city of Kirkuk and see independence in their sights. U.S. forces invested considerable time and resources in mediating between the different parties in these disputed territories. Without such a neutral third party, the likelihood of Arab-Kurdish conflict is increasing, with ISIS gaining the opportunity to present itself as the protector of the Sunnis against Iranian-backed Shia but also against what they perceive as Kurdish expansionism.
So what can and should the United States do? It is positive that the United States no longer views the violence in Iraq as separate from the bloodshed in Syria and Lebanon. The region has become one battlefield -- and U.S. policy must reflect that. It was the 1979 Iranian Revolution that set off the modern-day struggle between Iran and the Sunni powers. And it was the 2003 war in Iraq that led to sectarianization of regional politics. Then it was the 2011 U.S. departure from Iraq that left the impression in the region that Iran had defeated the United States. The United States needs to pursue policies that lessen sectarian tensions and support moderates. The majority of those living in Iraq and Syria yearn to live in peace with just, effective, and transparent governments. The choice before them cannot simply be Iranian-backed exclusionary regimes or al Qaeda–linked affiliates.
Although the United States and Iran face a common threat in ISIS, the United States should cooperate with Iran only if it leads to major reform of Iraq’s political system so as to overcome sectarian divisions. If not, the specter of a perceived alignment between the United States and Iran could worsen sectarianism and push more Sunnis toward ISIS.
The main political tensions in Iraq today are between Maliki’s drive to centralize power, the Kurds’ desire to maximize their autonomy, and the increasing Sunni awareness of themselves as a distinct community. The fall of Mosul and events that followed are indications that these tensions have come to a head and that it is time for Maliki to admit his failures and open the way for a more competent Shia leader to start a new approach. Although Maliki did head the winning bloc in the most recent elections, those opposed to him have enough votes to replace him if they can agree on an alternative. Iraq's political elites, in particular the Shia parties, need to select a new prime minister who is acceptable to them and to other communities, and is supported by Iran and Turkey as well as the United States.
In his June 19 statement, U.S. President Barack Obama said, "Iraqi leaders must rise above their differences and come together around a political plan for Iraq’s future. Shia, Sunni, Kurds -- all Iraqis -- must have confidence that they can advance their interests and aspirations through the political process rather than through violence.” Obama is right to pressure Iraqi politicians to form a new government, rather than insisting that they support Maliki. He correctly recognized that any military options would be effective only if they were in support of an overall political strategy that a new broad-based government agreed to. The United States has a key role to play in helping broker a new deal among the elites that creates a better balance among Iraq’s communities. A new broad-based Iraqi government will need to win back the support of Sunnis against ISIS -- and the Obama administration should be prepared to respond positively to requests for assistance to do so.