Charting Obama’s Journey to a Shift on Afghanistan (NY) TIMES) By DAVID E. SANGER 05/20/12)
Source: http://www.nytimes.com/2012/05/20/us/obamas-journey-to-reshape-afghanistan-war.html?_r=1&ref=world&gwh=CD543D9A6152D1EDE90AC16180246DC5
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It was just one brief exchange about Afghanistan with an aide late in
2009, but it suggests how President Obama’s thinking about what he
once called “a war of necessity” began to radically change less than
a year after he took up residency in the White House.
Not long before, after a highly contentious debate within a war
cabinet that was riddled with leaks, Mr. Obama had reluctantly
decided to order a surge of more than 30,000 troops. The aide told
Mr. Obama that he believed military leaders had agreed to the tight
schedule to begin withdrawing those troops just 18 months later only
because they thought they could persuade an inexperienced president
to grant more time if they demanded it.
“Well,” Mr. Obama responded that day, “I’m not going to give them
more time.”
A year later, when the president and a half-dozen White House aides
began to plan for the withdrawal, the generals were cut out entirely.
There was no debate, and there were no leaks. And when Mr. Obama
joins the leaders of other NATO nations in Chicago on Sunday and
Monday, the full extent of how his thinking on Afghanistan has
changed will be apparent. He will announce what he has already told
the leaders in private: All combat operations led by American forces
will cease in summer 2013, when the United States and other NATO
forces move to a “support role” whether the Afghan military can
secure the country or not.
Mr. Obama concluded in his first year that the Bush-era dream of
remaking Afghanistan was a fantasy, and that the far greater threat
to the United States was an unstable, nuclear-armed Pakistan. So he
narrowed the goals in Afghanistan, and narrowed them again, until he
could make the case that America had achieved limited objectives in a
war that was, in any traditional sense, unwinnable.
“Just think how big a reversal of approach this was in just two
years,” one official involved in the administration debates on
Afghanistan said. “We started with what everyone thought was a
pragmatic vision but, at its core, was a plan for changing the way
Afghanistan is wired. We ended up thinking about how to do as little
wiring as possible.”
The lessons Mr. Obama has learned in Afghanistan have been crucial to
shaping his presidency. Fatigue and frustration with the war have
defined the strategies his administration has adopted to guide how
America intervenes in the world’s messiest conflicts. Out of the
experience emerged Mr. Obama’s “light footprint” strategy, in which
the United States strikes from a distance but does not engage in
years-long, enervating occupations. That doctrine shaped the
president’s thinking about how to deal with the challenges that
followed — Libya, Syria and a nuclear Iran.
In interviews over the past 18 months, Mr. Obama’s top national
security aides described the evolution of the president’s views on
Afghanistan as a result of three rude discoveries.
Mr. Obama began to question why Americans were dying to prop up a
leader, President Hamid Karzai of Afghanistan, who was volatile,
unreliable and willing to manipulate the ballot box. Faced with an
economic crisis at home and a fiscal crisis that Mr. Obama knew would
eventually require deep limits on Pentagon spending, he was also
shocked, they said, by what the war’s cost would be if the generals’
counterinsurgency plan were left on autopilot — $1 trillion over 10
years. And the more he delved into what it would take to truly change
Afghan society, the more he concluded that the task was so
overwhelming that it would make little difference whether a large
American and NATO force remained for 2 more years, 5 more years or 10
more years.
The remaking of American strategy in Afghanistan began, though no one
knew it at the time, in a cramped conference room in Mr. Obama’s
transition headquarters in late 2008. Gen. Douglas E. Lute, who had
spent the last two years of the Bush administration trying to manage
the many trade-offs necessary as the Iraq war consumed troop and
intelligence resources needed in Afghanistan, arrived with a
PowerPoint presentation.
The first slide that General Lute threw onto the screen caught the
eye of Thomas E. Donilon, later President Obama’s national security
adviser. “It said we do not have a strategy in Afghanistan that you
can articulate or achieve,” Mr. Donilon recalled three years
later. “We had been at war for eight years, and no one could explain
the strategy.”
So in the first days of his presidency, Mr. Obama asked Bruce O.
Riedel, a former C.I.A. officer with deep knowledge of the region, to
lead a rapid review. At the time, the president was still speaking in
campaign mode. He talked about remaking “an economy that isn’t
dominated by illicit drugs” in Afghanistan and a “civilian surge” to
match the military effort. But he said little about the Riedel team’s
central insight: that Pakistan posed a far greater threat.
“If we were honest with ourselves, we would call this
problem ‘Pak/Af,’ not ‘Af/Pak,’ ” Mr. Riedel said shortly after
turning in his report. But the White House would not dare admit that
publicly — even that rhetorical reversal would further alienate the
Pakistanis.
Mr. Obama agreed with Mr. Riedel, but thought the review did not
point clearly enough toward a new strategy. To get it right, the
president ordered up a far more thorough process that would involve
everyone — military commanders and experts on civilian
reconstruction, diplomats who could explore a negotiation with the
Taliban, and intelligence officials who could assess which side of
the war the Pakistanis were fighting on.
But he also began to reassess whether emerging victorious in
Afghanistan was as necessary as he had once proclaimed. Ultimately,
Mr. Obama agreed to double the size of the American force while
training the Afghan armed forces, but famously insisted that, whether
America was winning or losing, the drawdown would begin in just 18
months.
“I think he hated the idea from the beginning,” one of his advisers
said of the surge. “He understood why we needed to try, to knock back
the Taliban. But the military was ‘all in,’ as they say, and Obama
wasn’t.”
The president’s doubts were cemented as the early efforts to take
towns like Marja in Helmand Province took months longer than
expected. To Mr. Obama and his aides, Marja proved that progress was
possible — but not on the kind of timeline that Mr. Obama thought
economically or politically affordable.
“Marja looks a lot better than two years ago,” one senior official
said at the end of last year. “But how many Marjas do we need to do,
and over what time frame?”
The tight group of presidential aides charged with answering
questions like that — of redefining the mission — began meeting on
weekends at the end of 2010. The group’s informal name said it
all: “Afghan Good Enough.”
“We spent the time asking questions like: How much corruption can we
live with?” one participant recalled. “Is there another way — a way
the Pentagon might not be telling us about — to speed the withdrawal?
What’s the least we can spend on training Afghan troops and still get
a credible result?”
By early 2011, Mr. Obama had seen enough. He told his staff to
arrange a speedy, orderly exit from Afghanistan. This time there
would be no announced national security meetings, no debates with the
generals. Even Defense Secretary Robert M. Gates and Secretary of
State Hillary Rodham Clinton were left out until the final six weeks.
The key decisions had essentially been made already when Gen. David
H. Petraeus, in his last months as commander in Afghanistan, arrived
in Washington with a set of options for the president that called for
a slow withdrawal of surge troops. He wanted to keep as many troops
as possible in Afghanistan through the next fighting season, with a
steep drop to follow. Mr. Obama concluded that the Pentagon had not
internalized that the goal was not to defeat the Taliban. He said
he “believed that we had a more limited set of objectives that could
be accomplished by bringing the military out at a faster clip,” an
aide reported.
After a short internal debate, Mr. Gates and Mrs. Clinton came up
with a different option: end the surge by September 2012 — after the
summer fighting season, but before the election. Mr. Obama concurred.
But he was placing an enormous bet: his goals now focus largely on
finishing off Al Qaeda and keeping Pakistan’s nuclear weapons from
going astray. Left unclear is how America will respond if a Taliban
resurgence takes over wide swathes of the country America invaded in
2001 and plans to largely depart 13 years later.
This article is adapted from “Confront and Conceal: Obama’s Secret
Wars and Surprising Use of American Power,” to be published by Crown
on June 5. (Copyright 2012 The New York Times Company 05/20/12)
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