Glen H. Stassen
Just Peacemaking
As debates about war in Iraq rolled over and
through churches and church members like a tidal wave, we saw the
deep need for teaching Christian ethical criteria about peace and
war—well in advance of a specific conflict. That teaching needs to
be concrete and deeply rooted in Christian formation to survive the
hot winds of secular ideologies. But which ethics should we teach?
Most churches will teach both pacifism and just war theory in order
explicitly to include diverse church members in the discussion, and
rightly so. But the national debate of recent months has
demonstrated dramatically that this is not enough.
Pacifism and just war theory are crucially
important, and every church member and every Christian ethics
student should know both of them well. Furthermore, they should
engage in a process of discernment to know which ethic is right for
their community of faith and for them. And they should be given deep
biblical, spiritual, and character formation so they care deeply
about this discernment, and about the destruction of war and the
need for peacemaking. But pacifism and just war theory are not
enough alone. They need help in a major way. As usually taught, they
are usually two-dimensional (war or no war); and they need a third
dimension (peacemaking practices or no peacemaking practices).
Pacifism and just war theory, for all their
necessity and importance, usually cast the debate as “just say
no”—or yes, in the case of just wars. Before the Iraqi war, Time
Magazine columnist Andrew Sullivan argued that the war met just
war criteria, while Christian ethicist Stanley Hauerwas countered by
arguing decisively for nonviolence and pacifism.[1]
Sullivan argued that there was no reasonable alternative for
dealing with Saddam Hussein and his (alleged) weapons of mass
destruction. Because Hauerwas did not respond to this claim that
there was no reasonable alternative, and offered no other resort,
many felt Sullivan won the debate. To his credit, Hauerwas said
“Nonviolence means finding alternatives to the notion that it is
ultimately a matter of kill or be killed.” But the only alternative
he suggested was “asking the many Christians in Iraq what we can do
to make their lives more bearable.”
Likewise, at the annual meeting of the Society
of Christian Ethics in January, ethicist James Childress incisively
examined the impending war in the light of just war theory,
concluding firmly that this war would not be just. Respondents
agreed, but asked, “What is the alternative?” Childress replied, “I
don’t know.” He was doing just war theory; he was not responsible
for suggesting constructive alternatives. Similarly, placards
nationwide read: “War is not the answer.” Some responded: “Then what
is the answer?”
I want to be clear that ever since we emerged
from graduate school, I have counted Hauerwas and Childress as
friends, and I respect their work greatly. We share many loyalties,
and we have done numerous projects together. I am not trying to
criticize them, but to point to the work of the best, as they use
their paradigms. Nor am I trying to criticize pacifism and just war
theory. I am seeking to argue decisively that these two traditional
paradigms need something in addition in order to strengthen what
they do. The twenty-three of us who created just peacemaking theory
are ourselves all either pacifists (in some cases) or just war
theorists (in most cases). We want to strengthen the two traditional
paradigms and make them more convincing, not less. We want them to
give them additional ammunition so that they persuade, so that they
win the national debate.
Why Wars are Always Initially
Supported
We need to be realistic. The public opinion
polls during the buildup to the Iraqi war disclose a powerful
reality that our ethics has been overlooking: just arguing no to a
war is bound to lose in the national debate. In January of 2003, NBC
News and the Wall Street Journal asked, “Do you think that the
United States should take military action to remove Saddam Hussein
from power in Iraq?” War was called by a bland term, “take military
action to remove… from power.” Taking action is considered a good
thing in American culture—much better than being passive. Removing a
dictator from power is also a good thing. No consequences of the war
such as deaths of people, increasing Arab hostility against the
United States, or increasing the anger of terrorists were named in
the question. Clearly the poll question was biased in favor of the
war; NBC is owned by a military-industrial corporation. Of those
polled, 56% said yes to military action, and 36% said no. A CNN/USA
poll with similar wording got virtually the same result—56% yes, 38%
no.
This was in spite of worldwide opposition to
the war, unprecedented near-unanimity against the war among church
leaders who issued statements, the largest pre-war demonstrations
against a war in U.S. history, and failure to get support of more
than two members besides the U.S. in the U.N. Security Council in
spite of powerful U.S. financial and political pressure. Is there
some realism here that should be learned from this?
Americans initially supported every war in
the 20th century, including even the Vietnam War, which
failed all eight criteria of just war theory, and which ultimately
was viewed as a mistake by 80% of Americans. 56 % for the
Iraq War was lower than for any American war in the twentieth
century. But the reality is that data show Americans support any war
the president favors—initially. So it is no surprise
that the majority supported this war, initially.
In his book, War, Presidents, and Public
Opinion, political scientist John Mueller analyzed polling data
about the Korean and the Vietnam Wars.[2]
My analysis of his data indicates that some 20% of Americans will
support any American war out of national loyalty—the
“rally-round-the-flag” factor. About 17% support a war
because the president supports it—the “deference-to-authority”
factor. When a war begins, this factor doubles to about 35%--the
“support our troops” factor. Then there is the
“threat-from-the enemy” factor—worth about 16% when the phrase “to
stop the Communist invasion” was added to survey questions during
the Korean War. Presidents regularly dramatize or even exaggerate
the threat posed by the enemy, as President Bush did in claiming
that Iraq had both extensive weapons of mass destruction, and
connections with Al Qaeda. In addition, some Americans support a war
that they consider to be a “just war,” even apart from these
factors. When these factors are added together, it is abundantly
clear why a majority of Americans initially supported the
recent war and every war in the 20th century, even wars
that turned out badly.
The conclusion is clear: to argue against a war
at the time when it is close to being initiated without articulating
a clear alternative is almost a guaranteed way to lose. It is to
play into the hands of those who want to say the war is supported by
the people. If we are to be realistic, our ethic needs something
more.
But Just War Theory and Pacifism Are Important
I want to reanalyze Mueller’s data and enter an
important qualification of his interpretation of his own data—not on
the point I have made thus far, but on the influence of just war
theory on public opinion as a war proceeds. Mueller argued that
moral arguments about the injustice of the Vietnam War had no
discernible effect in the polls on support or opposition for the
war. What did have influence was the number of body bags coming
home. In spite of increasing demonstrations against the war by both
pacifists and persons convinced the war was unjust, and despite
intellectuals’ arguments that the war was unjust, these did not seem
to affect the polls about the war. Furthermore, “What the tables
actually suggest… is that the ‘hawk’-‘dove’ categorization is quite
inadequate to explain popular opinion on the wars…. Followers tend
to reject proposals for forceful or accommodating policies in the
abstract if they imply an alteration of ‘our’ present course, but
once the president has adopted the new policy many in the group will
follow his lead…. If the administration is using force, followers
will respond like hawks; if it is seeking peace, they will respond
like doves.” (71). The latter sentence, that people will initially
support presidential leadership, either in making peace or in making
war, I do believe is supported by extensive political science data.
But not the rejection of the influence of the injustice of a war.
Mueller acknowledges that “support in both wars
declined from initial high levels to lower levels…. However, the
pace of the transitions differed considerably: the drop of support
in Korea was precipitous after the Chinese entered the war, but
support for Vietnam declined considerably more gradually.
Therefore…. It does not seem to be the case that the decline of war
support has been related to the duration of the war in any simple
manner. Such a relation works fairly well in the Vietnam case, but
in Korea there was a large drop in support over a relatively short
period of time during the winter of 1950-1951; thus, unlike Vietnam,
support did not decline continually as time went by” (59).
Instead, he argues, support for the two wars
declined in proportion to the number of body bags coming home. His
“body-bag hypothesis” has had much influence both in government
policy and in the public mind. (Hence the Bush administration does
not allow photographs of body bags coming home from the Iraqi War or
from the guerrilla war continuing after the mission was allegedly
accomplished.)
But support
for the two wars actually did not decline in proportion to the
number of body bags coming home, and Mueller notices this. “While
casualties continued to mount in the last two years of the Korean
War, there was no corresponding drop in support. And, after a
few years in the Vietnam War, casualties were being suffered at
increasing rates; yet support continued to decline at a relatively
gentle pace not really reflecting this mounting casualty rate”
(59-60—italics added). Therefore, he hypothesizes that the support
declined with the logarithm of the total number of casualties.
“A rise from 100 to 1000 is taken as the same as one from 10,000 to
100,000” (60).
Yet I point out that this too fits the data
poorly. Unlike Vietnam, support for the Korean War “did not decline
continually as time went by,” nor did it decline as body bags kept
coming home. When China entered the war, support dropped
precipitously from 66% to 39% (December 1950 poll). But subsequent
to that one-time drop, support was 41, 43, 45, 42, 39, (and
then an increase to 47 after the peace talks had begun), 37, 39, 36,
37, 50 (January, 1953, after Ike visited Korea). This is not a
decline at all from the 39% in December 1950 to January 1953. By
contrast, support percentages for the Vietnam War declined very
steadily from 61% in August 1965 to 28% in May, 1971: 61, 59, 49,
48, 51, 52, 50, 48, 44, 46, 42, 41, 40, 35, 37, 39, 32, 33, 32, 34,
36, 31, 28. I propose that support for the Korean War stayed steady
because people realized that though costly, it was a just war.
Support for the Vietnam War dropped steadily as more and more people
realized it was not only costly but also unjust. That matches his
data much more closely. In the just war, support stayed steady—at
40%. In the unjust war, support declined more and more—from 61% to
28%.
Another way to test the rival hypotheses is to
pay attention to the polls during the long-lasting and very costly
World War II (which Mueller fails to do). Far more body bags came
home from that war. But it was widely judged to be a just war (in
spite of the obliteration bombing). Did the support decline with the
body bags, or did it stay high with the perceived justice of the
war? It stayed high through the end of the war. Support did not
decrease, as it did not decrease for the Korean War. Mueller does
report a Gallup poll in early 1944, in which only 14% thought it was
a mistake for us to have entered this war, and 77% thought it was
not a mistake. In 1945, when it was clearly being won, support
increased to the 90% level. The threat-from-the-enemy factor was
higher for WWII, support for FDR was higher, nationalism was higher
with total mobilization, and the justice of the war was
higher--because Hitler was so thoroughly evil.
Both in the Korean War and WWII, the body-bag
hypothesis fails; the just war hypothesis succeeds. A confirming
measure is that desertions were few during WWII, but high during the
Vietnam War. Those who saw the Vietnam War first-hand knew it was
unjust, and many deserted. The conclusion surely is that just war
theory is important, especially as people assess a war when they see
how it is being conducted. This is an important correction of
Mueller’s hypothesis for policy and for ethics.
Mueller does not test for this alternative
hypothesis. It is odd that he does not publish the graph generated
by his hypothesis so we can see where it matches and where it fails
to match. The only alternative hypothesis that he considers is
unemployment and consumer prices. Unemployment decreased and
inflation increased during both wars, and unemployment increased
after both wars. Even here, he does not measure an hypothesis
related to these variables.
Mueller’s Table 4.6 may give an indication of
people’s growing sense of the wrongness of the war in Vietnam.
“People are called ‘hawks’ if they want to step up our military
effort in Vietnam. They are called ‘doves’ if they want to reduce
our military effort in Vietnam. How would you describe yourself—as a
‘hawk’ or a ‘dove’?” In December 1967, the hawks won 52/35. It
stayed about the same in January, and February: 56/28, 61/23, and
58/26. But by March, April, and October it was a virtual tie: 41/42,
41/41, and 44/42. And a year later, November 1969, it had become
doves over hawks by 55/31.
Having said a word for just war theory, let me
also say a word for pacifism. It was pacifists in the Fellowship of
Reconciliation and the Friends Meeting who got me to focus on the
wrongness of the Vietnam War at its very inception. They organized a
rice dinner so we could identify with the people of Vietnam, and did
a teach-in about the injustice of the war. It led me to do teach-ins
from the beginning, and to be highly active in opposition throughout
that war. Only somewhat later did Michael Walzer’s and Ralph
Potter’s teaching on just war theory and Vietnam enter into my
critical awareness. I want to give my support to teaching pacifism,
as well as to teaching just war theory, with full persuasiveness.
Not all students or all church members will be convinced by only one
of these paradigms, and they should not be left without an ethic.[3]
Church leaders who opposed the Iraqi war
against the forces of nationalism, deference to presidential
authority, and the alleged threat from the enemy might
receive encouragement from the fact that the initial support for the
Iraqi war was the lowest initial support in history. They were
rightly in touch with the Christian ethics of just war theory or
pacifism. Like prophets, they were in touch with the truth that
would eventually come out: the weapons of mass destruction were not
there; the model of making war unilaterally against the advice of
the international community is not one what we want other nations to
emulate; the world--and especially the Arab world--would greatly
resent the unilateralism of an “arrogant empire”; and rebuilding
Iraq after the war would be much more problematic than the
administration was leading us and itself to believe.
Mueller’s data do show decisively that if
people see that a war is not working out well, support declines. The
Korean War and the Vietnam War eventually became widely unpopular,
and the parties in power lost their next presidential bids. So did
the elder president Bush, after Iraq continued to be a problem and
U.S. deficits and unemployment grew. This time as well, since
the claimed weapons of mass destruction are not found, the political
future in Iraq does not match the administration’s promise, and the
damage to the U. S. economy from the costs of war and the withdrawal
of foreign investment from the U.S stock market hurts the economy,
support is dropping significantly.
Opposing a War Wins Only When it
Focuses on a Clear Alternative
Articulating a clear alternative to war fares
much better in the national debate. During the buildup to the recent
war, much of the peace movement focused on the alternative: “Let the
inspections work.” On February 10, February 24, and March 4, the CBS
News Poll asked, “Should the United States take military action
against Iraq fairly soon, or should the United States wait and give
the United Nations weapons inspectors more time?” Respondents
preferred the clear alternative of giving inspectors more time by a
ratio of almost two to one: 59% to 37%; 62% to 36%; and 60% to 35%.
This debate was won by the war’s opponents, assisted by reports from
the UN inspection team that weapons of mass destruction were not
being found, and that Iraq was cooperating with the inspectors’
demands for immediate access anywhere, overflights, and destruction
of those slightly over-range missiles. Therefore, the White House
shifted its argument from the alleged threat of the elusive weapons
of mass destruction to the dictatorship of Saddam Hussein and a
promise to bring democracy with human rights to Iraq. President Bush
thus committed himself verbally to the “nation-building” that he had
previously opposed.
Similarly, Americans thought--by about a
two-to-one majority--that the United States should wait for approval
from the United Nations before waging war. Hence President Bush
shifted from originally contending that he did not need a UN vote to
going to the UN and stating he would ask for UN approval before
waging the war.
Did articulating a clear alternative also fare
better during the national debate over the Vietnam War? Because
that war began surreptitiously, the opposition awoke only after
war had begun. Therefore, it had to concentrate on a
hard-to-support alternative—U. S. withdrawal from Vietnam.
Withdrawal would be seen as an admission of defeat.
Nevertheless, support for this alternative grew steadily from
16% in the fall of 1964 to 57% in January 1969. Then in June
1969, a poll question stated that “President Nixon has ordered a
withdrawal of 25,000 American troops from Vietnam,” and asked
people if they approved. It got 64% approval. In 1971, three
polls asked if people would like their Representative in
Congress to vote to bring all US troops home from Vietnam before
the end of the year. Support was 72%, 66%, and 68%. This was
especially significant; it meant withdrawing sooner than the
president intended.
A strategically important realism is speaking
to us from these data: If the president advocates a war, and the
question is simply whether or not to support the war, majorities
will say yes. Posing the ethical question that way is almost a
guaranteed way to lose the national debate. The reality is that an
ethic that focuses on a constructive alternative has a much better
chance to win the debate.
Likewise, the prophets of Israel did not just
say no to war, but spelled out the changes, the repentance, the
practices of justice and wisdom that were necessary in order to
avoid the judgment and destruction of war.[4]
Jesus did not just say no to anger and revengeful resistance, but
commanded the transforming initiative of going to make peace with
your brother or sister; and going the second mile (Matt 5:21-25,
38-42)[5].
Just Peacemaking as Hermeneutical Key
for Constructive, Preventive Strategies on Terrorism
Just peacemaking theory is designed to point to
a set of constructive alternatives that are realistic in the sense
that each just peacemaking practice has demonstrated its
effectiveness in preventing some wars in actual historical context.
The ten just peacemaking practices are supported by various
theological-ethical approaches: the twenty-three authors come from
different branches of theological ethics. But each practice is
already being implemented in various historical contexts, and each
has demonstrated empirically for political science that it has a
preventive effect.
My assignment is to ask, How does just
peacemaking theory point to a foreign policy that fits our
historical context more realistically, with particular focus on the
threat of terrorism? A strength of just peacemaking theory is that
its ten practices are historically situated. Their effectiveness is
being demonstrated in actual practice, in recent and present
history. Hence I will not discuss the just peacemaking practices one
at a time, as isolated practices, but instead I shall look briefly
at several cases or issues in the current struggle to prevent
international terrorism, suggesting how some of the practices point
us in a different and more contextually fitting direction than
present policy. Looking at one case or issue at a time will have the
advantage of being historically contextualized and engaged. It will
also have the advantage that terrorism will not be reduced to only
one dimension. But it will have the disadvantage of not laying out
one practice at a time for clear definition. That has been done
already in many places. My assignment is to suggest several
dimensions of an effective anti-terrorism policy as seen from the
perspective of just peacemaking theory as a hermeneutical key. This
means I must be suggestive; I cannot analyze in the depth that each
issue deserves. Each of the dimensions deserves a paper in itself;
and each in the hands of other interpreters can suggest other
insights.[6]
Just peacemaking is a hermeneutical key: it
alerts us to practices that are historically effective in preventing
terrorism. It will lead us to see several different dimensions of an
effective policy. It will not lead all of us to see exactly the same
implications, but it will lead us to fruitful angles of vision.
Turkish and Russian
Antiterrorism Compared
Turkey has wrestled with decades of terrorism
by ethnic-minority, Muslim Kurds in southeastern Turkey seeking
independence, just as Russia has wrestled with terrorism by
ethnic-minority, Muslim Chechens in southern Russian seeking
independence. A comparison is instructive. Russia chose a
scorched-earth military approach, attacking repeatedly with large
force. The result has been enormous devastation, many deaths, and no
end to terrorism. Fareed Zakaria wrote in December, 2003, that
in the four
previous months,
seven Chechen suicide bombers, all but
one of them women, have detonated explosives that have taken 165
lives, including their own…. In the early 1990s, there were no
Chechen suicide bombers, despite a growing, violent movement against
Russian rule…. Reporters who covered the Chechen war in the early
1990s mostly agree that there were very few “international
Islamists” —Saudis, Afghans, Yemenis—present. They grew in numbers…
as a direct result of the “brutal, botched and unnecessary” Russian
military intervention of 1994-96.[7]
Turkey had an analogous and very serious
problem with the Kurdish rebellion and terrorism led by the PKK (Partiya
Karkeren Kurdistan). It had killed more than 30,000 persons
since its beginning in 1984. The Turkish army had been attacking
them with widespread force, but in the mid-1990s, they developed a
much more disciplined approach to avoid attacking civilians, and
introduced health and education for the Kurdish area.[8]
One just peacemaking practice is sustainable economic development,
and the key to that is community development--development of the
civic society of local communities. Kurdish areas have been
economically worse off and neglected by the central government. But
in a change of course to pay attention to sustainable economic
development, the government “initiated huge investments in the
southeast, exemplified by the $32 billion Southeastern Anatolia
Project, to improve the long-languishing region’s economic
prospects. Indeed, between 1983 and 1992 the southeast received
twice as much investment per capita as any other region in Turkey….”[9]
“Considerable economic development has taken place.” Recognition was
given to Kurdish language and community customs. The government
invested extensively in improving education, including for girls and
women. Instead of trying to break down Kurdish tribal structures, as
previously attempted, they gave them recognition and sought to
enlist them in the struggle for economic development, community
development, and political representation.[10]
Another just peacemaking practice has been to
advance human rights, democracy, and religious liberty. Kurds
have gained actually more representation in the Turkish parliament
than their proportion of the population. This has been in part a
response to pressure from the Western European Union and Turkey’s
drive to be accepted as a member off the WEU. The Kurds have seen
the move toward joining the WEU as promising them improved
democratization as well as economic development.[11]
“Civil associations in Turkey are growing in strength and exerting
increasingly effective pressure on the government…. The election of
Ahmet Necdet Sezer, a prominent democrat from the judicial
establishment, to the country’s presidency could also have a
positive effect….”[12]
The pressure, and the allure, of the WEU
suggests the importance of working with emerging cooperative
forces in the international system--another practice of just
peacemaking. And the international community was also important in
arresting Ocalan, the leader of the terrorist organization. He had
been living in Syria, safe from Turkey’s military, but Syria
expelled him as part of its effort to improve relations with Turkey
and international pressure against terrorism. Ocalan sought refuge
in Italy and other countries, but instead Italy arrested him.
Turkey then negotiated with him, and achieved
his cooperation in ending the terrorism in exchange for forgoing the
death penalty. Here is the just peacemaking practice of
cooperative conflict resolution. “In 1996 the journalist Franz
Schurmann called the PKK ‘the biggest guerrilla insurgency in the
world.’” But by May, 2000, the PKK had basically quit.[13]
The painful and tragic irony is that recently
we have seen two more days of terrorism in Turkey. But they were not
Kurdish terrorism against the Turks. They were apparently Al Qaeda
terrorism against Israel and the British-American “coalition of the
willing.” As president Bush and prime minister Tony Blair were
meeting in London, Nov. 20, 2003, terrorists attacked the
London-based HSBC bank and the British consulate. Twenty-six people
were killed, including British Consul Roger Short was killed.
Five days previously, two Jewish synagogues in Istanbul were bombed,
killing twenty-three people and wounding more than 300. There had
been several small attacks on UK and US diplomatic premises April 3,
April 8, May 31, and June 11.[14]
It is a tragic symbol. It symbolizes that the
anger in Turkey has been shifted from Kurdish anger against the
government to terrorist anger against Israel and the alliance
between the U. S. and Britain. It might suggest what works and what
does not work in combating terrorism.
Rewarding Terrorists?
This also may help us think through to a
clearer answer to the objection often raised, that “we must not
reward terrorists.” Turkey did not reward the PKK terrorists; they
went after them in a carefully targeted way. They separated them
from the people by energetic action for justice for the people. They
convinced the Kurds that their future was better with Turkey than
with the ideology of the terrorists. They undermined the ability of
the terrorists to recruit more support, and they enlisted
international forces in arresting the leader of the PKK.
Terrorists thrive by identifying themselves
with just demands of the people. A policy that fears rewarding
terrorists easily becomes a policy that avoids doing justice for
people. If a region is being oppressed, and the terrorists identify
with that oppression, doing justice for the people is not rewarding
terrorists, it is doing justice. Hence just peacemaking focuses our
attention on justice, on sustainable economic development, and on
human rights, democracy, and religious liberty. And in this case,
Turkey rewarded Ocalan for his cooperation by keeping him imprisoned
but not seeking the death penalty.
The belief that “we must not reward terrorists”
derives in part from a stimulus-response view of human nature, which
may also connect with the ideology of a market-consumerist view of
human nature. It also connects with a punitive and retributive—and
authoritarian—attitude, and with the Munich image that fears
rewarding aggressors. An example is the Bush administration’s
problems dealing with North Korea that have gone so very badly seem
to stem from a declared unwillingness to continue the accord worked
out by former president Carter that supported alternative energy
sources that do not produce nuclear weapons fuel, and its
unwillingness to negotiate a non-aggression agreement, because it
might reward the North Korean government. Social movements are far
more complicated than mere behaviorist understanding, or the Munich
image, assumes. People are not merely the rationalistic model of
stimulus/response to be rewarded or punished; they perceive in
complex ways and they have complex drives. One must ask what drives
for justice, security, honor, and cultural recognition are involved,
and what initiatives and what policies make sense and work
effectively to prevent terrorism.
An analogous point is made by Rob de Wijk of
the Royal Military Academy in Leiden. Strategies of deterrence or
coercion developed for interstate war do not work in terrorism
because the
coercers—the United States and its allies—must clearly indicate that
the war is not against the Afghan people, but against terrorists and
the regime supporting them. Thus there are no civilian populations
(such as the Soviet people in the Cold War) to threaten in the
effective use of coercion. Worse, excessive military force could
split the fragile Islamic alliance that is cooperating with the
United States in the war against terrorism…. For that reason,
humanitarian aid for the civilian population accompanied the initial
attacks on Afghanistan in early October 2001.[15]
The point is to separate the terrorists from
the people, and to do justice for the people so they separate from
the terrorists. As Susan Thistlethwaite writes, “The spiral of
violence will end only when justice is done. No amount of
retaliatory violence will give us security in the age of terrorism.”[16]
Biological Weapons
The biggest fear is
chemical and biological weapons, and especially biological weapons.
One can see this throughout the most recent literature on terrorism.[17]
If terrorists use biological weapons, the diseases may be spreading
for a week before the first outbreak of symptoms, and medical
personnel are not likely to diagnose what they are for another week
or so, so the disease may have spread to many cities. “The United
States has a profound interest in preventing other countries from
testing nuclear arms and stopping rogue regimes and terrorists from
acquiring biological weapons. Despite their imperfections, the
[Comprehensive Test Ban Treaty and Biological Weapons Convention]
would advance these important goals. If the United States rejects
the restraints these agreements impose or declines to negotiate
improvements, how can it ask others to embrace them?[18]
Yet the Bush administration did precisely that. “In the summer of
2001, the United States shocked its peers when it rejected the
protocol to the bioweapons treaty” that would have established
verification procedures.[19]
Without verification, the treaty was without teeth. And without the
United States, the verifications do not go into force. The treaty
had already been signed and ratified in 1975, but negotiations to
establish legally binding verification did not begin until 1995.
Verification would include annual declarations to nations describing
their programs and their factories that could be used to produce
biological weapons, random visits to declared facilities, and
short-notice inspections of facilities suspected of producing
bioweapons. Clearly this would be useful in preventing many likely
sources of bioweapons for terrorists.
By
mid-2001 a consensus text was emerging, and on July 23, 2001, the
twenty-fourth negotiating session convened. Delegates expected their
efforts would soon result in a final text. During the first three
days, more than 50 nations spoke in favor of promptly completing the
negotiations. Then U.S. Ambassador Donald Mahley brought the entire
process to an end: “The United States has concluded that the current
approach to a protocol to the Biological Weapons Convention … is
not, in our view, capable of … strengthening confidence in
compliance with the Biological Weapons Convention. . . . We will
therefore be unable to support the current text, even with changes.”
And later
in 2001, “the United States tried at the last minute to terminate
protocol negotiations completely, throwing the meeting into disorder
and leaving no option but to suspend the conference until November
2002.” This earned the U.S. great disappointment, criticism, and
anger from the world community. Furthermore, it moved the other
nations toward developing biological weapons without inspections,
which can be placed into the hands of terrorists. It blocks an
enforceable international law that mandates inspections where
terrorists might be seeking to develop such weapons for their own
use.
One just
peacemaking practice is to reduce offensive weapons and weapons
trade. Surely this practice is the way of wisdom for bioweapons.
In an age of terrorism, does the United States want to be in a world
where it is responsible for blocking the very inspections for
bioweapons that it demanded of Iraq and North Korea? Another
practice already mentioned is to work with emerging cooperative
forces in the international system. And still another is to
strengthen the United Nations and international efforts for
cooperation and human rights. Yet the Bush administration began
by withdrawing from the Comprehensive Test Ban Treaty designed to
stop nations from developing nuclear weapons, from the Antiballistic
Missile Treaty designed to keep outer space unweaponized, from the
International Criminal Court, from the Kyoto Accords, and from
engagement in peacemaking in the Middle East and with North Korea.
These go in the opposite direction from just peacemaking practices.
Surely it seems clear to us now after 9-11 that we need cooperation
with international networks in supporting international treaties
like the bioweapons treaty.
Apparently this reality occurred to some in the Bush administration.
When the conference met again in November of 2002, the chairman
proposed annual two-week study meetings, looking toward a possible
reconsideration in 2006. This time the United States softened a bit,
allowing the studies to go forward. We do not know what the United
States will do, but just peacemaking suggests reducing bioweapons
and working with the cooperative forces of the international
community is especially needed now.
Israel and Palestine
The
greatest source of anger for Arabs and Muslims in the Middle East is
the ongoing occupation of Palestine by Israel, the increasing spread
of Israeli settlements in Palestine, and the assassinations of
terrorist leaders plus Palestinian citizens in the vicinity, with
U.S. support. The Israelis are angry at the terrorist violence that
they experience. The history and the issues are enormously
complicated.
I can
only point to two just peacemaking practice that can make a
difference. The “Geneva Accord” was a dramatic of cooperative
conflict resolution engagement of Israeli and Palestinian
leaders who, though not speaking for their governments, were
prominent and respected leaders. They met in Geneva and worked out
the borders and the arrangements for a Palestinian state with
integrity, a shared Jerusalem, and security for Israel. This was the
practice of conflict resolution in a truly hopeful sense. Getting
that plan into the public awareness sets a target, a reasonable
solution that takes both sides’ interests seriously, that is already
pressuring the governments to move toward a resolution to the
seemingly unending conflict.
The Bush administration
announced from its first days that it was disengaging from efforts
to do conflict resolution in the Middle East. This left a weak
Palestine with a powerful Sharon-led government, and a huge
increrase in terrorism. “By any measure 2002 was an astonishing year
for Israel in terms of suicide bombings. An average of five attacks
a month were made, nearly double the number during the first fifteen
months of the second intifada—and that number was itself more than
ten times the monthly average since 1993. Indeed, according to a
database maintained by the National Security Studies Center, at
Haifa University, there were nearly as many suicide attacks in
Israel [in 1992] (fifty-nine) as there had been in the previous
eight years combined (sixty-two).”[20]
Just
Peacemaking would urge the administration to re-engage in practicing
conflict resolution. And indeed, Tony Blair persuaded President Bush
to become engaged in the “Roadmap for Peace.” The Roadmap is or was
the just peacemaking practice of independent initiatives. In
this practice, the two sides do not wait for the slow process of
negotiations—which in cases of great distrust and threat may be
impossible. Instead, one side takes initiatives of threat-reduction
independent of the process of negotiations. Palestine chose a prime
minister who could act somewhat independently from Arafat, as Israel
had demanded. And he persuaded the leading terrorist organizations
to suspend terrorist acts for a three-month trial period. Israel
freed most of Gaza from military occupation, freed a few prisoners,
and loosened curfews and checkpoints in a few places. These are
independent initiatives. However, Israel did not pull back any
significant settlements, and it continued to assassinate Palestinian
leaders whom it identified as terrorists. And Palestine did not
disarm terrorist organizations. The United States did not push
forcefully for implementation of further initiatives. As a result,
the roadmap failed, at least for the time. And now reports are that
the Bush administration has disengaged for the election year. Just
peacemaking encourages re-engagement in the independent initiative
process.
Perhaps I can propose an innovative independent
initiative. The world knows that the settlements are the big
obstacle to the peace between Israel and Palestine. And the
Palestinian terrorism is causing Israeli politics to shift to the
right and become more rigid. Realism points out that Palestinian
leaders cannot clamp down on the terrorist organizations unless they
see significant progress on pulling back settlements. Realism also
points out that Ariel Sharon’s political support depends in part on
the settlers’ movement; he is not pulling back settlements, and the
roadmap to peace is being undermined. Waiting for him to pull them
back is waiting for an unlikely hope. The settlers are financially
subsidized by the Israeli government, which in turn is subsidized by
$3 billion per year by the U.S. government. An independent
initiative that the U.S. government can take is to use a portion of
the $3 billion to buy settlers’ homes at prices high enough to give
good incentive to move back, provided they use the money to buy
homes in Israel, thus contributing the money to Israel’s economy and
saving the IDF the costs of defending the settlements. According to
polls, most settlers would be willing to move back to Israel if the
financial incentives were reversed. Other settlers, seeing their
neighbors leave, and not wanting to be left alone with Palestinian
neighbors, would start leaving also.
For the first time, Palestinians would see the
trend toward reduction instead of expansion of settlements. Their
leaders would then have something real to point to as they persuaded
the terrorist organizations once again to halt the terrorism.
Failing to make peace in the Middle East is
quite sure to cause terrorism against the United States, and will be
responsible for additional destruction in the near future. If the
administration is serious about reducing the threat of terrorism, it
will heed the warnings that failure to engage in strong support for
conflict resolution and independent initiatives in the Middle East
will cause violence against Israel and against its main supporter,
the United States. It causes angry recruits to terrorism.
Failed States as Havens for
Terrorists
The
Washington Quarterly reader, The Battle for Hearts and Minds:
Using Soft Power to Undermine Terrorist Networks, pays special
attention to failed states-- that lack an effective government, so
something like anarchy reigns. The
failed states are Afghanistan, Angola, Burundi, DRC, Liberia,
Sierra Leone, and Sudan; a dozen others are candidates. Failed
states create havens where terrorists can organize and train
recruits, can establish weapons collections; and can engage in drug
trade or other money-gathering endeavors. The obvious example was
Afghanistan, where Al Qaeda organized and trained.[21]
Military action is not sufficient; these states
need rehabilitation and democracy-building. A bipartisan consensus
supports efforts at building democracies (235), which is a practice
of just peacemaking. It is not called nation-building because that
carries historical associations with failed efforts in Vietnam, and
because president Bush campaigned for the presidency while
denouncing nation-building. “I would be very careful about using our
troops as nation builders. I believe the role of the military is to
fight and win war and, therefore, prevent war from happening in the
first place…. Morale in today’s military is too low…. I believe
we’re over-extended in too many places.” Therefore, it is now called
“postconflict reconstruction” or “democracy-building” instead
(175-6). Since president Bush’s election we have seen the truth in
what candidate Bush said: not only is the military over-extended, it
is, as he said, “over-extended in too many places.” The
military is not trained for nation-building, and we are seeing that
Pentagon control of the rebuilding process in Iraq has not worked as
if it had been well planned. Furthermore, it is true that the morale
is indeed low.
Battle for Hearts and Minds has much
wisdom about building democracy, and about why it should be led by
civilians focused on rehabilitation of civic society, not only
elections and military security. It requires strengthening the rule
of law and respect for human rights, developing genuine political
processes, fostering the development of civic society; promoting
accountable public institutions, and developing governmental
capacity to deliver basic public goods (242). Thus far, there has
been too much attention to building a police force and overlooking
of other dimensions of democracy-building (201 et passim). Karin von
Hippel is especially insightful in her study of Haiti, Bosnia,
Kosovo, and East Timor (108ff.). She writes what just peacemaking
theory affirms: “The promotion of democracy is based on the
assumption that democracies rarely go to war with each other, and
therefore an increase in the number of democratic states would
imply…a more peaceful and secure world” (109). And democracies
produce far fewer terrorists because disgruntled citizens have other
means for seeking change, as the essay by Windsor explains (362ff.).
This is bipartisan consensus, and it affirms
the just peacemaking practices of advancing democracy and human
rights, and fostering just and sustainable economic
development, which we argue depends on community development.
The problem that the book identifies is that present policy
emphasizes military action too much and community-development and
civil-society development too little. So much of the anti-terrorism
money and attention goes to strengthening the military forces in
countries like Indonesia, the Philippines, Pakistan, and Israel,
where the military forces have been the enemy of human rights and
democracy. Thus the United States is seen by many as the supporter
of autocracy and the enemy of citizen movements (103-4 et passim).
And as the United States declared its military war against
terrorism, Indonesia canceled peace talks with the rebels in Aceh
and instead made war against them; Israel increased its military
attacks against Palestinian leaders; and Russia pursued its
destructive war against Chechnya free of U.S. government criticism.
Recruiting
Terrorists
There is much wisdom in The Battle for
Hearts and Minds. But it might be over-influenced by the war in
Afghanistan, a failed state, which had just occurred at the time of
the writing. Other studies of the recruitment of terrorists point
not so much to failed states as autocratic states. The failed states
are havens for terrorist organizations that come from other
countries, and they do create the terrorism against their own people
that comes with anarchy. But Afghanistan, Angola, and Burundi have
not been known for producing international terrorist recruits;
authoritarian autocracies such as Saudi Arabia and Egypt produce
them. But not all autocracies. Syria, Iran, and Iraq before Saddam
was defeated, have not produced terrorists who attack the United
States, because the United States government did not support those
autocracies and so was not resented by their people who chafed under
those autocracies. It is the U.S.-supported autocracies that produce
terrorists against the United States. The conclusion would seem to
be that the United States should be nudging these autocracies in the
direction of human rights and democracy (362-6), a key just
peacemaking practice.
In The Battle for Hearts and Minds,
Windsor’s chapter describes “authoritarian political systems” in the
Middle East that are supported by the United States government.
Almost every Arab country is less free than it was forty years ago.
“In such societies, severe repression drives all politics
underground, placing the moderate opposition at a disadvantage, and
encouraging political extremism.” Double-digit unemployment causes
the educated but unemployed youth to grow increasingly angry and
frustrated (364-5).
It’s not the poorest states, but the autocratic
states, that are the prime generators of international terrorists.
Autocracy generates terrorists (150ff. 162-3, 166).
Some have pointed out that the poorest and
least educated do not become international terrorists, and then they
argue that economic development is not important for preventing
terrorism. But, as Just Peacemaking points out, it is those
who have developed some expectations and then see their own or their
fellows’ conditions dropping well below those expectations who tend
to turn to violence.[22]
So for example, Michael Radu first shows that
joblessness of educated Muslims, not poverty of uneducated Muslims,
creates terrorists. But then he concludes that the terrorism is not
created by economic injustice. This is a non sequitur: the
economic joblessness of educated Muslims is surely a problem of
economic injustice. And their seeing their poor and uneducated
compatriots also oppressed heightens the anger. See Radu’s logic:
The known backgrounds
of the September 11 terrorists suggest the same: leaders and
recruits to the most fanatical terrorist groups are not the
poor, unfairly treated, and marginalized masses of the Islamic
world, but rather—just as in Latin America, Sri Lanka, and the
Philippines, young and radicalized university graduates who have
lost their traditional employment in government-paid universities
and other public sector positions and find their career aspirations
blocked. The same syndrome applies to unassimilated and
unassimilable young, well-educated, usually second-generation Muslim
immigrants in the West…. Nothing in the background of the
Western-born or –based Muslim terrorists supports the widespread
fantasy that Islamic terrorism can somehow be explained by
injustice, poverty, or discrimination. On the contrary, terrorism on
the scale of the September 11 attacks requires elaborate
coordination by multilingual, adaptable, and highly educated people.
No impoverished, ignorant victims of Western imperialism need apply.
At bottom, therefore, international fundamentalist Islamic terrorism
is not a social or economic, but rather a cultural,
phenomenon.”
[23]
Surely it is also a cultural problem, including
the culture of authoritarianism. That is why just peacemaking
practices focus both on human rights and democracy, and on
sustainable economic development.
Zachary Abuza has written an impressive study
of terrorist networks in Southeast Asia. He combines relative
economic deprivation with authoritarian religion as causes of
terrorist recruitment. In Southeast Asia, “radical Islam is growing
for a variety of reasons. These include economic dispossession, the
lack of political freedom, the spread of Wahhabism and Salafi Islam,
the failure of secular education, and an increased number of
religious students studying in Middle Eastern and south Asian
madrasses (Islamic schools).”[24]
The growth of Islamic extremism around the
world, since the Iranian revolution in 1979, has less to do with
theology and more to do with the failure of the domestic political
economies of respective Muslim countries. Increasing gaps between
the rich and poor, inequitable distribution of wealth, poverty, a
lack of economic diversity, unemployment, corruption, and the lack
of a viable political alternative, have all given rise to Islamic
extremism. People literally have become so desperate that they have
nowhere to turn to except extremist religious politics.[25]
Yet Abuza’s main theme is the intricate
international interconnections of the international terrorists. It
is an astounding web of financing, money-raising, recruiting,
teaching, organizing, encouraging, inspiring, that connects the
terrorists together across the many countries in which they exist.
The conclusion seems clear that combating terrorism cannot be the
work of one powerful country with a large military force. It
requires work with the international forces of justice and peace, a
cooperative foreign policy, and not a unilateral policy that
alienates other nations with what they perceive, in Fareed Zakaria's
words, as “the arrogant empire.”
[26]
The Limits of Unilateral Power and Need for a Cooperative
Foreign Policy:
There is a limit to how much the United States
can do or will do, and there is a limit to how much military power
can do. Many of us recall Reinhold Niebuhr’s realistic essay, “The
Limits of Military Power,” during the Vietnam War. There is surely a
limit to how much the United States can do alone, without major help
from Europe and from other nations.
Many of us also recall the debate between
George W. Bush and Al Gore, when Bush said, “It is time for the
Europeans to do their share in Kosovo”? Apparently he did not know
that 85% of the troops in Kosovo then were European and 15% were
American. I thought that was the error of ignorance that Gore would
catch and turn the presidential debates into Bush’s demise, as in
Gerald Ford’s error when he said one of the Eastern European nations
was not dominated by the Soviet Union. Carter caught him in that
error of ignorance, he was embarrassed, and Carter won. I expected
Gore to catch Bush in his error of ignorance, but Gore just let it
go by. Gore was Vice President. Surely he knew! Or was that Gore’s
error of ignorance also, and did it lose the election for him?
The point is that, even in ignorance, Bush was
right then that the United States should not be expected to do it
all alone; we need the Europeans, Asians, Africans, Middle
Easterners and all the world to do their share. He said we need “a
more humble foreign policy.” He was right. But his statement is
irony now. We need a new foreign policy of cooperation, in which the
United States cooperates with other nations so they cooperate in
bringing their skills and capabilities to these complex problems.
Enormous complexity is not at drift. We are
involved in rebuilding Kosovo, Bosnia, and Serbia. If that goes
wrong, we have trouble. We are involved in rebuilding Afghanistan.
Once before, Afghanistan was in flux, after they kicked out the
Russians, and we failed to help them rebuild effectively, and now we
see the result: The Taliban supporting Al Qaeda, Muslim resentment,
and 9-11. The Muslim world is watching to see if the United States
only wants to make war on Muslim nations or will be committed to
building justice and peace and a semblance of government, education,
and economic opportunity. So far the record is that we are doing the
job in Kabul, but mostly neglecting the rest of the country. And
much of what is being done is being done by Europeans and others. We
are involved in rebuilding Iraq. Clearly it was a mistake to put the
U.S. Pentagon in charge of the effort; they were not prepared for
the task, and they have positively neglected international
cooperation in making the war and in letting contracts that was
needed to achieve the necessary international cooperation. Iran is
in flux; a democracy movement is being blocked, and whatever the
United States can do for Muslims to see us as a friend rather than a
foe will influence the outcome. Egypt is in flux; in a fair
election, the Muslim Brotherhood, and not the party of Mubarak,
would likely win hands down. Egypt depends on billions of dollars of
U.S. aid to stay afloat, and whether the U.S. government is seen as
pro-democracy or pro-autocracy, and whether it is seen as engaged in
the struggle for peace and justice between Palestine and Israel,
will significantly influence the outcome in Egypt. Pakistan has
nuclear weapons, and its leader, Musharraf, has an uncertain grasp
on power; the tensions created by Al Qaeda’s use of Afghanistan and
by the U.S.-led war on Afghanistan, and the subsequent semi-chaos in
Afghanistan, threaten a political earthquake in Pakistan resulting
in an Islamist government with nuclear weapons. Indonesia, the
world’s largest Muslim nation, is struggling between becoming a
working democracy or an ungoverned failed state. Israel and
Palestine threaten to become even worse in the midst of the
opportunity to march toward peace. That is the major source of anger
and recruitment of terrorists throughout the Middle East, and all
Arab nations are saying it was an egregious mistake for Bush to have
begun his administration by disengaging from peacemaking there and
leaving a weak Palestine to the mercies of a Sharonic Israel, which
in spite of its great military superiority itself feels like a weak
victim of increased terrorist attacks in the last three years.
All these are sources of terrorist recruitment.
Many of these are places where terrorists could obtain weapons of
mass destruction. All these complexities are in play now. The world
is changing, and the world is complicated. The United States cannot
do it alone. Nor can military power do it alone.
And at the same time, these forces of flux
create significant opportunity for change toward peace. The Greater
Middle East, reaching all the way to Pakistan, needs more responsive
governance, more effective economics, and a strengthening of the
peaceful side of Islam rather than the authoritarian and radical
side. Things could move in this direction, if they receive wise and
consistent help. But that is more than the United States can do
alone. The United States needs to work consistently with the United
Nations, and the international forces for human rights and
cooperation—two key practices of just peacemaking--so that those
forces work with the United States to nudge the world in the
direction of peace.
Change is in the air. There is great danger,
and great opportunity. The United States is very powerful. If it
aligns its power with the cooperative forces in the international
system, and with the United Nations, together they can do much more;
they can do a great deal for peaceful change.
Endnotes
[1]
Time Magazine (March 3, 2003): 44-45.
[2]
John E. Mueller, War, Presidents, and Public Opinion
(New York: John Wiley & Sons, 1973).
[3]
During this time Paul Ramsey was arguing the war was just. I
discussed his use of just war theory in supporting the war
in an article on method, “A Social Theory Model for
Religious Social Ethics,” Journal of Religious Ethics
(Spring, 1977). I
contend just war theory needs to expand its method to
include critical attention to loyalties and assumptions in
perceiving the social context.
[4]
Norman Gottwald, All the Kingdoms of the Earth: Israelite
Prophecy and International Relations in the Ancient Near
East (New York: Harper & Row, 1964), is highly
insightful and realistic, and forty years later, still is
must reading for ethicists.
[5]
ref CONTACT _Con-46C300861 Glen Stassen, Just
Peacemaking: Transforming Initiatives for Justice and Peace
(Louisville: Westminster John Knox, 1992), Chapters 2 and 3.
[6]
I have written a somewhat systematic overview in “Turning
Attention to Just Peacemaking Initiatives that Prevent
Terrorism,” The Council of Societies for the Study of
Religion Bulletin 31/3 (September, 2002), 59-65. Susan
Brooks Thistlethwaite has written an incisive essay on just
peacemaking practices that combat terrorism, “New Wars, Old
Wineskins,” Strike Terror No More: Theology, Ethics and
the New War (St. Louis: Chalice Press, 2002). [Page
info. needed here and in a few other endnotes.]
[7]
Fareed Zakaria, “Suicide Bombers Can Be Stopped,” msnbcnews,
December, 2003 (http://www.msnbc.com/news/953555.asp).
[8]
Svante E. Cornell, “The Kurdish Question in Turkish
Politics,” Orbis 45/1 (Winter 2001): 42.
[9]
Michael Radu, “The Rise and Fall of the PKK,” Orbis
45 no 1 (Winter, 2001): 58.
[14]
Peter Woodman, “Stay Away from Istanbul, Britons Told,” The
Press Association Limited, Nov. 20, 2003.
[15]
Rob de Wijk, “The Limits of Military Power,” in Alexander
Lennon, ed., The Battle for Hearts and Minds: Using Soft
Power to Undermine Terrorist Networks (Cambridge, Mass.:
MIT Press, 2003), 16. Though, as Susan Thistlethwaite points
out, “the airdrops are not coming anywhere close to meeting
the need for food,” and picking them up in that heavily
mined country involves much danger.
[16]
Susan Thistlethwaite, “New Wars, Old Wineskins.”
[17]
As attested to in The Battle for Hearts and Minds,
69, 286, et passim; and Arnold Howitt and Robyn Pangi, ed.,
Countering Terrorism: Dimensions of Preparedness
(Cambridge, Mass: MIT Press, 2003), chapter 5 et passim.
[18]
Anthony J. Blinken, “Winning the War of Ideas,” in The
Battle for Hearts and Minds, 285.
[19]
Mark Wheelis, Malcolm Dando, and Catherine Auer, “Back to
Bioweapons? Bulletin of the Atomic Scientists 59/1
(Jan/Feb, 2003): 40-47. The following information and quotes
come from this well-informed essay. It contains further
discussion of reasons why the United States rejected
enforcement, which lead it to the conclusion the U.S. should
re-enter the treaty.
[20]
Bruce Hoffman, “The Logic of Suicide Terrorism,” Atlantic
Monthly 291 no 5 (June 2003): 44.
[21]
Battle for Hearts and Minds, 73, 79, 91, 153, et
passim.
[22]
Just Peacemaking: Ten Practices, 112.
[23]
Michael Radu, “Terrorism After the Cold War: Trends and
Challenges,” Orbis (Spring, 2002): 286.
[24]
Zachary Abuzah, “Al Qaeda’s Southeast Asian Network,”
Contemporary Southeast Asia 24/3 (Dec 2002): 428.
[25]
Ibid., 433. For a wider-ranging historical study of
terrorism in a readable format, see Walter Laqueur, The
New Terrorism: Fanaticism and the Arms of Mass Destruction
(New York: Oxford University Press, 1999), 79-156; and Paul
Gilbert, New Terror, New Wars (Washington: Georgetown
University Press, 2003).
[26]
Fareed Zakaria, “The Arrogant Empire,” Newsweek
(March 24, 2003): 19-33.
Glen Stassen is author of Just Peacemaking: Transforming
Initiatives for Justice and Peace, Just Peacemaking: Ten Practices
for Abolishing War, and Kingdom Ethics: Following Jesus in
Contemporary Context (InterVarsity Press), which won the
Christianity Today award for best book of the year in theology
or ethics. He is Smedes Professor of Christian Ethics at Fuller
Theological Seminary, and co-chair of the long-range strategy
committee of Peace Action. |