Flynt Leverett
The New York Times
3/2/2005
Washington: The assassination last month of Rafik Hariri, the former Lebanese
prime minister, has given new life to an old idea: using the issue of Lebanese
independence to undermine Syria's strategic position. Drawing on the language of a United Nations Security Council resolution passed last
summer, President Bush and senior officials are now calling on "the Syrian
regime"
to remove its military and intelligence personnel from Lebanon and cede
any
political role there.
Administration hawks like Defense Secretary Donald Rumsfeld (who, as
President Reagan's Middle East envoy, oversaw the collapse of America's
foray into Lebanon's civil war) and the National Security Council's
Elliott
Abrams (whose previous involvement in Lebanon policy helped generate the
Iran-contra scandal) believe that such a course would allow the
establishment of a pro-Western government in Beirut that would
accommodate
Israel and help to project American influence. They also believe that it
would set the stage for the Syrian regime's collapse, removing another
Baathist "rogue state."
The turmoil unleashed in Lebanon by the Hariri assassination - which
reached a high point this week with the resignation of the
Syrian-backedprime minister, Omar Karami - may indeed represent a
strategic
opening, but not for the risky maximalist course that some in the
administration seem intent on pursuing.
For starters, any effort to engineer a pro-Western Lebanese government
would be resisted by Hezbollah, the largest party in Lebanon's
Parliament,
which because of its record of fighting Israel is at least as legitimate
in
Lebanese eyes as the anti-Syrian opposition. In the face of such
resistance,
efforts to establish a pro-Western government would fail, creating more
instability in the region when the United States can ill afford it.
Does the Bush administration understand that for the foreseeable
future,
any political order in Lebanon that reflects, as the White House put it,
the
"country's diversity," will include an important role for Hezbollah?
Does
the administration feel confident about containing Hezbollah without
on-the-ground Syrian management and with the group's sole external guide
an
increasingly hard-line Iran? Even Prime Minister Ariel Sharon's national
security adviser recently said that an overly precipitous Syrian
withdrawal
from Lebanon could pose a threat to Israel.
Moreover, the sudden end of the regime headed by Bashar al-Assad would
not
necessarily advance American interests. Syrian society is at least as
fractious as Iraq's or Lebanon's. The most likely near-term consequence
of
Mr. Assad's departure would be chaos; the most likely political order to
emerge from that chaos would be heavily Islamist. In the end, the most
promising (if gradual) course for promoting reform in Syria is to engage
and
empower Mr. Assad, not to isolate and overthrow him.
To exploit the current moment wisely, the Bush administration must
abandon
ideological attachments to a bygone era when Maronite Christian leaders
dominated Lebanon or fantasies of a strategically neutered democratic
state
emerging in Syria over the next few months. We have been down this road
before, during Lebanon's civil war; it ends with Americans killed or
taken
hostage in terrorist attacks, and our credibility damaged by our
inability
to undergird rhetoric with sustainable policy.
It's smart to take advantage of the current focus on Syria's position
in Lebanon to obtain concrete improvements in Lebanon's political
environment. With help from international partners and key Arab states, it should be
possible to win the redeployment of the last Syrian troops in Lebanese
cities either to Syria or to Lebanon's Bekaa Valley, in accordance with
the 1989 Taif accord that ended Lebanon's civil war. Mr. Assad's recent
statements make clear that it should also be possible to induce the
Lebanese
and Syrian governments to negotiate a timetable for withdrawing all
Syrian
forces. During his four and a half years as president, Mr. Assad has
already
cut the number of Syrian troops in half, setting precedents for further
reductions.
By taking up Mr. Assad's call for bilateral dialogue, the
administration
could also negotiate a freer Lebanese electoral process, monitored by
international observers. The United States, however, should recognize
that
an expansion of political openness will unfold over years, rather than
weeks
or months; it will need to proceed cautiously to avoid a re-emergence of
sectarian violence.
As Syria retrenches in Lebanon, the United States should use the issue
to
leverage improved Syrian behavior on issues that arguably matter more to
American interests in the region, like Syrian support for insurgents in
Iraq
and for terrorist activity against Israel. Syria's decision to effect
the
turnover of Saddam Hussein's half brother and other Iraqi Baathists did
not
come primarily in response to American jawboning over Iraq. Rather, it
was
prompted by Syria's interest in deflecting the mounting criticism of its
role in Lebanon.
The Bush administration can elicit more sustained improvements in
Syrian
behavior on Iraq and terrorism by using the threat of intensified
criticism
of Syrian hegemony in Lebanon - including Security Council action - as a
badly needed stick in the repertoire of policy options toward Syria.
Washington should also not be afraid to spell out for Mr. Assad the
carrots
it would offer in return for greater cooperation. In so doing, President
Bush could more effectively pursue some of his most important objectives
for
the region while tangibly improving the lives of ordinary Lebanese.
Flynt Leverett, former senior director for Middle Eastern affairs at
the National Security Council, issenior fellow at the Brookings
Institution's Saban Center for Middle East Policy and author of the forthcoming
"Inheriting Syria: Bashar's Trial by Fire."