Paul Pillar

The Costs and Consequences of Managing Rogue States

Many variables are involved in the messy predicaments in the Middle East, but one way of framing the history and issues of U.S. policy toward the region is in terms of the approaches that have been taken toward so-called rogue regimes. That term, one should hasten to add, obscures more than it enlightens. But it has been in general use for a long time. Take it as shorthand to refer to regimes that have come to be considered especially troublesome and are subjected to some degree of ostracism and punishment.

Three basic approaches are available in formulating policy toward such a regime: (1) keep ostracizing and punishing it in perpetuity; (2) try to change the regime; or (3) negotiate and do business with it, to constrain it and to influence its actions. There are some contradictions between the approaches. Any regime that is led to believe that it is going to be overturned anyway, or that it will be perpetually punished anyway, lacks incentive to make concessions in a negotiation.

The approaches that outside powers, especially Western powers and above all the United States, have taken toward Middle Eastern regimes that have come to be considered rogue have varied—not only from one state to another but also over time in the policy toward any one state.

Iraq was subject to punishment for a long time, with the prevailing outlook not involving urgency to try different things. The perspective, as voiced by Secretary of State Colin Powell, was that Saddam Hussein was “in his box.” Then suddenly the policy became one of forceful regime change, stimulated by nothing other than such a project has been on the neoconservative agenda and that the surge in militancy in the American public mood after the 9/11 terrorist attack, even though Iraq had nothing to do with that event, finally made realization of that agenda item politically possible.

Libya under Muammar Qaddafi was subject to years of punishment and ostracism. As far as international sanctions were concerned, this did have a specific declared objective: involving the turning over of named suspects in the bombing of Pan Am 103 in 1988. Once Qaddafi surrendered the suspects, real negotiation ensued. It resulted in an agreement that ended (while opening up to international inspection) Libya's unconventional weapons programs and confirmed the Libyan regime's exit from international terrorism. Then, after an internal insurrection broke out in Libya, the idea took root—first in Western European capitals, although Washington would go along—that the situation should be exploited to intervene on behalf of the rebels and to help overthrow the regime. Regime change supplanted negotiation.

Policy toward Syria has been a mixed bag all along. There has been lots of punishment, but without some of the isolation to which other regimes have been subjected; the United States kept diplomatic relations with Syria even after placing it on the list of state sponsors of terrorism. Once an internal revolt broke out in Syria, a situation similar to Libya arose, in that some outsiders (principally Gulf Arab states and Turkey) wanted to take advantage of the situation to topple the Assad regime. With Russian and Iranian help, and also for internal reasons, the regime has managed to hang on. But “Assad must go” became a slogan elsewhere, and many in the West took regime change to be an objective. There was negotiation leading to the surrender and disposal of Syrian chemical weapons, but some, including in the United States, did not like that approach. While there has been some backing away from the idea that Assad must go, others outside Syria say that still should be an objective. In short, there has been conflict and controversy, even within the United States let alone in any larger coalition, over just what the objective should be.

Iran has been subject to much punishment in the form of sanctions. Then after Hassan Rouhani's election in 2013 there was real negotiation on an important issue. This led to the conclusion and implementation of a multilateral agreement that places limits on, and subjects to international scrutiny, Iran's nuclear program.

Before turning to a balance sheet regarding the results of these different approaches, some observations are in order about what has too often been overlooked with two of the approaches. The sustained use of punishment in the form of sanctions often has been accompanied by confusion about exactly what the objectives are—if that objective is to be anything besides punishment for punishment's sake, which does not advance anyone's interests. An objective might be to make it directly harder for the targeted regime to do certain things, such as to procure advanced military technology. Or it might be to try to provoke an internal revolt, although this rarely works, for several reasons including where the blame for the pain usually falls. Often the rationale for the sanctions is that it is an inducement to get the targeted regime to change its policies. But this does not work unless there is a positive alternative to the negative one of punishment and sanctions, and unless there is a firm expectation that the sanctions will end if the regime chooses a different, specific, identifiable course. And that is what has often been overlooked and missing. This explains the years of failure of imposing sanctions on Iran without providing any positive alternative. If such an alternative had been offered, a nuclear agreement could have been reached years earlier, when Iran's nuclear program was much smaller.