When even Armed Services Committee chair John Warner (R-Va) confesses that the Iraq war effort is "drifting sideways," its time to revisit even previously unpalatable policy alternatives that begin to look better alongside the abyss. One such proposal is Les Gelb's idea of trying to refashion Iraq into a confederation of 3 essentially separate states: Kurd, Sunni and Shiite. The Baker-Hamilton Commission, charged with Bush to evaluate Iraq policy options and report back after the election, is weighing this possibility, as is the Iraqi Parliament.
The gist of the idea is a weak Iraqi central government responsible for border controls, foreign affairs, and control and distribution of Iraq's oil wealth. All other functions, including policing and security, would be devolved to three separate, though confederated, entities.
Gelb has been talking about this for nearly 3 years, during which time the inevitable failings he predicted with a unitary approach have all come to fruition. Michael Signer has addressed Gelb's proposal several times here on Democracy Arsenal. Back in May Gelb and Senator Joseph Biden co-authored an NYT op-ed on the subject that continuous to reverberate.
For a long time, the plan seemed to give up too quickly on the hope of a single and stable Iraq, sowing the seeds for both internal strife within the fiefdoms and a likely resumption of interethnic and regional conflict down the road. It was tough to face up to a fragile, fractured and politically tremulous Iraq as the end-result costing the lives of thousands of American soldiers and the valiant efforts of hundreds of thousands more. But compared to a violent and uncontrolled inferno, a broken but at least partly stable country holds increasing appeal. I had a chance to discuss Gelb's ideas with him in depth just last week, and think they merit a closer look now.
Here's what I like about the idea, and below that are some important caveats:
- It acknowledges that the quest for a unitary Iraq isn't progressing - Many of us have in the past urged waiting weeks, months and years to see whether conditions in Iraq don't turn a corner. They haven't, and honest observers now admit more waiting is futile.
- Ideally, the option is a way to stop trying to impose an American vision on Iraq, and let the country's endemic political and social forces set their own course - Among the greatest flaws of the Iraq invasion and occupation is the degree to which made-in-America prescriptions were fed to an unwilling population. Gelb and others argue, with some support, that the confederation proposal more accurately reflects where Iraq's own history and politics would lead. The prospect of going with, rather than against Iraq's inherent grain is intrinsically appealing, though - particularly in light of polls showing more than three-fourths of Iraqis opposed to partition - we need to make sure that truths on the ground, rather than convenience and desperation, are making confederation now seem a "natural" outcome.
- Its an alternative to simple US withdrawal - Many of us are uncomfortable with simply withdrawing from Iraq (or even a more strategic redeployment) on grounds that Iraq would likely become a failed state with grave consequences for US security.
- It has the potential to prevent Iraq - or at least parts of Iraq - from becoming a failed state - The idea behind partition is that it would allow very (Kurdistan) and largely (the Shiite regions) stable areas of Iraq to more formally cordon themselves off from the violence in the center, and that Sunni Baathists - if given free rein - would stand a decent chance of being able to stamp out the insurgents and al Qaeda.