Success Without Victory
by J. E. Dyer
Developments with the war in Afghanistan are causing us to question our methods of warfare as we have not since Vietnam. Comparisons of Afghanistan to Vietnam are mushrooming, of course; Fouad Ajami has a useful one today, in which he considers the effect of withdrawal deadlines on the American people's expectations as well as the enemy's. But on Friday, Caroline Glick took a broader view of contemporary Western methods, comparing the U.S. operating profile in Afghanistan to that of the IDF in Lebanon in the 1990s.
As I have done here, she invoked the White House guidance report in December, according to which "we're not doing everything, and we're not doing it forever." Such guidance, she says, "when executed … brings not victory nor even stability." She is right; Fouad Ajami is right; and both are focusing where our attention should be right now, which is on the conduct of the war at the political level.
There's a good reason why comparisons with Vietnam are gathering steam. It's not the geography, the campaign plan, or the details of the historical context, alliances, or political purposes: it's the behavior of the American leadership. As Senator McCain points out, President Obama has steadfastly refused to affirm that the July 2011 deadline is conditions-based. But I was particularly struck by the recent words of Richard Holbrooke, Obama's special envoy for the "AfPak" problem, because they evoke a whole political doctrine of "limited war," which dates back to the Vietnam era.
Holbrooke has been keeping a low profile. But he's a crucial actor in this drama, and in early June he made these observations:
Let me be clear on one thing, everybody understands that this war will not end in a clear-cut military victory. It's not going to end on the deck of a battleship like World War Two, or Dayton, Ohio, like the Bosnian war. …
It's going to have some different ending from that, some form of political settlements are necessary … you can't have a settlement with al-Qaeda, you can't talk to them, you can't negotiate with them, it's out of the question. But it is possible to talk to Taliban leaders. …
What do [critics] mean by win? We don't use the word win, we use the word succeed.
As an aside, I would have thought the Dayton process did, in fact, have relevance for the "peace jirga" process now underway with the Afghan factions, and that we might expect an outcome with some similarities to the Dayton Accords. But my central concern here is the virtually exact overlap of Holbrooke's conceptual language with that of the Johnson-era prosecution of the Vietnam War.
That we had to seek a "settlement" with North Vietnam and the Viet Cong was received wisdom under Lyndon Johnson; in this memo from a key reevaluation of the war effort in 1965, Defense Secretary Robert McNamara leads off with it. His reference to "creating conditions for a favorable settlement" by demonstrating to the North Vietnamese that "the odds are against their winning" is a near-perfect statement of the limited-war proposition encapsulated by Henry Kissinger in his influential 1958 book, Nuclear Weapons and Foreign Policy (quotations are from the W. W. Norton & Co. edition of 1969). Said Kissinger:
The goal of war can no longer be military victory, strictly speaking, but the attainment of certain specific political conditions, which are fully understood by the opponent. … Our purpose is to affect the will of the enemy, not to destroy him. … War can be limited only by presenting the enemy with an unfavorable calculus of risks. (p. 189)
Kissinger's title reminds us that it was the emerging nuclear threat that galvanized limited-war thinking in the period leading up to Vietnam. But that was only one of the factors in our selection of limited objectives for that conflict. Another was an attribution to the enemy of aspirations that mirrored ours, with the persistent characterization of the North Vietnamese Communists – much like Richard Holbrooke's of the Taliban – as potential partners in negotiation. A seminal example of that occurred in Johnson's celebrated "Peace without Conquest" speech of April 7, 1965:
For what do the people of North Vietnam want? They want what their neighbors also desire: food for their hunger; health for their bodies; a chance to learn; progress for their country; and an end to the bondage of material misery. And they would find all these things far more readily in peaceful association with others than in the endless course of battle.
It was not, of course, what the people of North Vietnam wanted that mattered; this political factor was sadly miscast. The LBJ speech was beautifully crafted and full of poignant and powerful rhetoric. But the rhetoric could not ultimately hide the bald facts, which were that Johnson wanted a settlement in Vietnam, that he had no concept of victory to outline, and that his main desire was to get out.
The speech was recognized at the time as "defensive" in character. And we must not deceive ourselves that Holbrooke's words from earlier this month are being interpreted abroad in any other way. I've seen no reference to his comments in a leading American publication, but media outlets across Asia, Europe, and Africa have quoted him. It's interesting that in 2010, he feels no need to cloak his blunt observations – so consonant with Kissinger's dryly precise limited-war formulation – in the elliptical, emotive language favored by the Johnson administration in its public utterances. In the 1960s, the limited-war concept of disclaiming all desire to "win" was still suspect. But, as much as we have criticized it in the decades since, we have internalized and mainstreamed it as well. Holbrooke apparently feels empowered to speak clearly in these terms, without euphemism or caveat.
There is no good record to invoke for pursuing the strategy of "peace without conquest." It took almost exactly 10 years after the LBJ speech for the strategy to produce the total collapse of the U.S. effort in Vietnam; a wealthy superpower can keep "not-winning" for a long time. All but 400 of the 58,000 American lives given to Vietnam were lost in that 10-year period, along with the hundreds of thousands of Vietnamese lives taken in the fighting and the Communist victory.
But there was a lot of success in that period too. U.S. troops won every tactical engagement, including the defeat of the Tet Offensive in 1968. Under Nixon, North Vietnam was isolated and driven to the bargaining table. Under General Creighton Abrams, the defense of the South had, with the exception of air support, been successfully "Vietnamized" when the U.S. pulled out our last ground forces in 1972. But these successes could not establish a sustainable status quo.
Vietnam is our example of what "success without victory" looks like. We should be alarmed that the current administration seeks that defensive objective in Afghanistan. Such a pursuit is, itself, one of the main conditions for producing failure – and failure that is compounded by being protracted and bloody. As for the reason why that should be, Dr. Kissinger, with his clinical precision, must have the last word:
In any conflict the side which is animated by faith in victory has a decided advantage over an opponent who wishes above all to preserve the status quo. It will be prepared to run greater risks because its purpose will be stronger. (p. 246)
Kissinger acknowledged when he wrote these words – having both Vietnam and the larger Soviet threat in mind – that this was a limiting factor the Western powers had not devised a means of overcoming. In Afghanistan today, meanwhile, by Team Obama's affirmation, we are the side not animated by faith in victory.
J. E. Dyer
Jennifer E. Dyer retired from a career in Naval intelligence in 2004. She lives in Southern California and blogs at theoptimisticconservative.wordpress.com.
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