Libya and Iraq taught us two lessons. The first was that campaigns designed to topple brutal dictators do not necessarily yield better regimes. Instead of the brutality of tyrants, the brutality of chaos and smaller tyrants emerged. The second lesson, well learned in Iraq, is that the world does not necessarily admire interventions for the sake of human rights. The United States also learned that the world's position can shift with startling rapidity from demanding U.S. action to condemning U.S. action. Moreover, Washington discovered that intervention can unleash virulently anti-American forces that will kill U.S. diplomats. Once the United States enters the campaign, however reluctantly and in however marginal a role, it will be the United States that will be held accountable by much of the world -- certainly by the inhabitants of the country experiencing the intervention. As in Iraq, on a vastly smaller scale, intervention carries with it unexpected consequences.
These lessons have informed U.S. policy toward Syria, which affects only some U.S. interests. However, any U.S. intervention in Syria would constitute both an effort and a risk disproportionate to those interests. Particularly after Libya, the French and other Europeans realized that their own ability to intervene in Syria was insufficient without the Americans, so they declined to intervene. Of course, this predated the killing of U.S. diplomats in Benghazi, Libya, but it did not predate the fact that the intervention in Libya surprised planners by its length and by the difficulty of creating a successor regime less brutal than the one it replaced. The United States was not prepared to intervene with conventional military force.
That is not to say the United States did not have an interest in Syria. Specifically, Washington did not want Syria to become an Iranian puppet that would allow Tehran's influence to stretch through Iraq to the Mediterranean. The United States had been content with the Syrian regime while it was simply a partner of Iran rather than Iran's subordinate. However, the United States foresaw Syria as a subordinate of Iran if the al Assad regime survived. The United States wanted Iran blocked, and that meant the displacement of the al Assad regime. It did not mean Washington wanted to intervene militarily, except possibly through aid and training potentially delivered by U.S. special operations forces -- a lighter intervention than others advocated.
Essential Interests
The U.S. solution is instructive of the emerging doctrine. First, the United States accepted that al Assad, like Saddam Hussein and Gadhafi, was a tyrant. But it did not accept the idea that al Assad's fall would create a morally superior regime. In any event, it expected the internal forces in Syria to deal with al Assad and was prepared to allow this to play out. Second, the United States expected regional powers to address the Syrian question if they wished. This meant primarily Turkey and to a lesser degree Saudi Arabia. From the American point of view, the Turks and Saudis had an even greater interest in circumscribing an Iranian sphere of influence, and they had far greater levers to determine the outcome in Syria. Israel is, of course, a regional power, but it was in no position to intervene: The Israelis lacked the power to impose a solution, they could not occupy Syria, and Israeli support for any Syrian faction would delegitimize that faction immediately. Any intervention would have to be regional and driven by each participant's national interests.
The Turks realized that their own national interest, while certainly affected by Syria, did not require a major military intervention, which would have been difficult to execute and which would have had an unknown outcome. The Saudis and Qataris, never prepared to intervene directly, did what they could covertly, using money, arms and religiously motivated fighters to influence events. But no country was prepared to risk too much to shape events in Syria. They were prepared to use indirect power rather than conventional military force. As a result, the conflict remains unresolved.
This has forced both the Syrian regime and the rebels to recognize the unlikelihood of outright military victory. Iran's support for the regime and the various sources of support for the Syrian opposition have proved indecisive. Rumors of political compromise are emerging accordingly.
