The murder of Ambassador Stevens and three other Americans in Libya on September 11 has created a growing political backlash in the United States, but there are three other reasons that this attack is significant. First, an al Qaeda unit successfully assaulted American soil for the first time since 9/11. Second, we were -- once again -- caught by surprise, and third, the attacks show that al Qaeda is not just alive and kicking (as I mentioned in my previous post), but that our current strategy for dealing with the group is failing.
While various plots have been attempted by al Qaeda and individuals or cells associated with the group, the sacking of the Benghazi consulate was the first successful attack that can be definitively tied to the organization. Excellent work by Thomas Joscelyn suggests that the attack on the consulate was just one of four separate assaults on embassies carried out by al Qaeda that day. This simultaneity is, by the way, one reason that I immediately suspected -- and wrote about - al Qaeda involvement in the raids, since this is as much a hallmark of al Qaeda operations as, for instance, the use of suicide bombers in Muslim-majority countries and the targeting of international organizations.
Just as worrisome for future events is the fact that the United States was caught off-guard, yet again, by this massive and sophisticated operation. I would argue that there are four reasons for this failure: a widely accepted narrative, a false view, the successes of the targeted attrition program, and assumptions about the war in Libya. For the past 18 months there has been a building narrative among both the expert community and this administration that, with the death of Bin Ladin, al Qaeda is nearly finished and that there is nothing left but a small group of "dead-enders," known as the "core," that need to be dealt with. Al Qaeda, in the narrative, is so weakened that it can barely stay alive, let alone carry out successful and complex attacks like that in Benghazi.
This narrative is based on a false view of al Qaeda: that the "core" is a small terrorist group whose main objective is attacking the United States, that the affiliates have primarily local concerns, that there is little command and control between the "core" and the affiliates, and that, therefore, the United States must only kill off the central leadership to be safe. I responded to this view of al Qaeda in several earlier posts, arguing that the core and affiliates are intimately connected, that the main objective of al Qaeda is taking over the Muslim-majority world, and that the organization is, in fact, attempting to create and lead a global insurgency. If this is all true, then al Qaeda is nowhere near defeat, and is, in fact, doing far better today than at any time in its existence.
The successes of counterterrorism czar John Brennan's targeting program played into both the narrative and the current accepted view of al Qaeda by giving the impression of progress in the war with al Qaeda. As each member of the leadership was killed -- most especially Bin Laden, but many others as well -- experts and administration officials proclaimed that we could see the light at the end of the tunnel. The belief that the United States was making progress against al Qaeda (along with the notion that the affiliates have mainly local concerns) created a false sense of security in many places, including Libya.
Finally, and most controversially, I believe that this administration's incorrect reading of the war in Libya worked with the narrative and analytical issues to create the preconditions for the United States to be caught by surprise in Benghazi. Unlike the war in Iraq, the United States managed to topple the Libyan dictator without putting American lives in danger and without exacerbating local tensions through the presence of our troops. The result should have been less violence, no insurgency, and no organized al Qaeda group in Libya. The continued, and even strengthening, violence in places like Benghazi -- along with a strong al Qaeda presence -- was unexpected and therefore unplanned for, again adding to the shock of September 11.
The third significance of Benghazi is that it underlines the failure of our current strategy to deal with al Qaeda. For several years, the main strategies for combating al Qaeda have been to take them on through our ground troops (in Iraq and Afghanistan), to empower partners to fight them (many places in the Middle East), or to use attrition to whittle down the group's leadership. With the ending of the wars in Iraq and Afghanistan, and the slow shifting of some partners away from aiding us (see Egypt and Pakistan, for example), we are more and more dependent on attrition as the means for taking out the group. The spread of al Qaeda to many new places, including the Sinai, Mali, Syria, and of course Libya, points to the failure of this strategy to achieve our goals.
Shadow Government is a blog about U.S. foreign policy under the Obama administration, written by experienced policy makers from the loyal opposition and curated by Peter D. Feaver and William Inboden.