... Here is the tough question: What are America's objectives in Iraq and how can we achieve them? More bluntly, what is to be done with the roughly 140,000 U.S. troops stationed there? What is their mission? If they have new goals, do these require more Americans or fewer? Not to tackle this issue is to present a doughnut document—all sides and no center.
In answering this question, we need to keep three factors in mind:
*This is not our chessboard. The Iraqi government has authority over all the political issues in the country. We may have excellent ideas about federalism, revenue-sharing and amnesty, but the ruling coalition has to agree and then actually implement them. So far, despite our many efforts, they have refused. There is a desperate neoconservative plea for more troops to try one more time in Iraq. But a new military strategy, even with adequate forces, cannot work without political moves that reinforce it. The opposite is happening today. American military efforts are actually being undermined by Iraq's government. The stark truth is, we do not have an Iraqi partner willing to make the hard decisions. Wishing otherwise is, well, wishful thinking.
*Time is not on America's side. Month by month, U.S. influence in Iraq is waning. Deals that we could have imposed on Iraq's rival factions in 2003 are now impossible. A year ago, America's ambassador to Iraq had real influence. Today he is being marginalized. Thus any new policy that requires new approaches to the neighbors and lengthy negotiations carries the cost associated with waiting.
*America's only real leverage is the threat of withdrawal. Many outsiders fail to grasp how much political power the United States has handed over in Iraq. The Americans could not partition Iraq or distribute its revenues even if Bush decided to. But Washington can warn the ruling coalition that unless certain conditions are met, U.S. troops will begin a substantial drawdown, quit providing basic security on the streets of Iraq and instead take on a narrower role, akin to the Special Forces mission in Afghanistan.
And one last thing: for such a threat to be meaningful, we must be prepared to carry it out.
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