Probably the only useful thing outside powers can do, would be to engage in serious new diplomacy, in which supporters of both the regime and the armed opposition participate.
By Phyllis Bennis
27 June 2012
Syria on the brink of all-out civil war.
Fifteen months on, the short Syrian spring of 2011 has long since morphed into a harsh winter of discontent. Syria is close to full-scale civil war.
If the conflict escalates further, it will have ramifications far outside the country itself. As former UN Secretary-General and current envoy of both the UN and the Arab League Kofi Annan put it, “'Syria is not Libya, it will not implode, it will explode beyond its borders."
Like so many other times before, the human cost of this conflict is incalculably high. It’s not surprising that the normal human reaction is “we’ve got to do something!” But exactly what any army or air force might do that would actually help the situation isn’t very clear.
US/NATO military intervention didn’t bring stability, democracy or security to Libya, and it certainly is not going to do so in Syria.
The one crucial outside approach that could help resolve at least the immediate conflict – serious negotiations in which both sides are represented – for the moment remains out of reach.
Former UN Secretary-General Kofi Annan, the joint UN and Arab League envoy in Syria, has proposed at a new diplomatic initiative that would include the Syrian regime’s supporters, Iran and Russia, as well as the US-allied western countries and those Arab and regional governments backing the armed opposition.
So far the US has rejected the proposal, at least regarding Iran, with Secretary of State Hillary Clinton saying that Tehran is part of the problem in Syria and thus can’t be part of the solution. The current UN secretary-general, Ban ki-moon, who frequently reflects Washington’s interests, further undercut the potential of his own envoy’s proposal, saying that Assad has “lost all legitimacy” – diplomatic code for “we don’t have to talk to him.”
For those eager for analogies or counterparts, this isn’t Egypt or Libya, where opposition to the leader was overwhelming. Despite his government’s history of brutal repression, Bashar al-Assad still enjoys significant support from parts of Syria’s business elites, especially in Damascus and Aleppo, and some in minority communities (Christian, Shi’a, parts of the Druse and even some Kurds) whom the regime had cultivated for many years.
The opposition was divided from the beginning over whether massive reform or the end of the Assad regime was their goal. It divided still further when part of the opposition took up arms, and began to call for international military intervention. The non-violent opposition movement, which still rejects calls for military intervention, survives, but under extraordinary threat.
There is no question that the regime has carried out brutal acts against civilians, potentially including war crimes. It also appears the armed opposition is responsible for attacks leading to the deaths of civilians. It is increasingly difficult to confirm who may be responsible for any particular assault.
The UN monitors on the ground, whose access was already severely limited, have now been pulled from the field. The regime has allowed a few more foreign journalists to enter the country, but restrictions remain and the fighting is so severe in many areas they are often unable to get solid information.
The regime is clearly responsible for more attacks with heavy weapons, including tanks and artillery, but it is also clear that the anti-government forces are being armed with increasingly heavy weapons, largely paid for by Qatar and Saudi Arabia and coordinated by Turkey and the CIA. Indications are growing of well-armed outside terrorist forces operating in Syria as well.
Accountability, whether in national or international jurisdictions, is crucial – but stopping the current escalation of violence and avoiding all-out war must come first.
Sectarianism on the rise
Syria is erupting in a region still seething in the aftermath of the US war in Iraq. While most US troops and mercenaries have left Iraq, the destruction and instability left behind have created a legacy that will last for generations.
One aspect of that legacy is the sectarian divide that the US invasion and occupation imposed in Iraq – and as the expansion of that divide continues across the region, the threat of increasing sectarianism in Syria looms. Although the Assad regimes – from father Hafez’s rise to power in 1970 through his son Bashar’s rule since 2000 – have always been ruthlessly secular, Syria remains a poster-country for sectarian strife. The ruling Assad clan are Alawites (a form of Islam related to Shi’ism), ruling over a country with a large Sunni majority.
If the increasing sectarianism of the Syrian conflict extends beyond its borders, it could lead to regional conflagration involving even greater refugee flows and potentially battles in or around Syria’s neighbors Lebanon, Iraq, Turkey or elsewhere. Already, alongside the international power interests colliding in Syria, there is the beginning of a Sunni-Shi’a proxy war taking shape, with Sunni Saudi Arabia and Qatar, and Shi’a Iran, backing opposing forces.
Threats US/Western intervention
Iran’s role is the single most important basis for US and other western interest in Syria, making that emerging proxy war even more dangerous.
At this moment of continuing US pressure, increasing US and EU sanctions, and Israeli threats against Iran, Syria remains a tempting proxy target. Syria itself isn’t a significant oil producer, and Washington has been far more concerned about keeping Syria’s borders secure for Israel, and reducing Iranian influence than with getting into Syria itself.
Damascus’s longstanding economic, political and military ties with Tehran mean that efforts to weaken or undermine Syria are widely understood to be at least partly aimed at undermining Iran, by destroying Tehran’s one reliable Arab ally. This is perhaps the most influential factor pushing the US towards greater action against Syria.
Certainly the US, the EU and the US-backed Arab Gulf governments would prefer a more reliable, pro-western (meaning anti-Iranian), less resistance-oriented government than Assad’s in Syria, which borders key countries of US interest including Israel, Iraq, Lebanon, Turkey. They would also prefer a less repressive government, since brutality brings protesters out into the streets, threatening instability.
But for the moment, despite the US involvement in helping its allies arm the opposition, conditions in the area still make a direct Libya-style US/NATO military strike on Syria somewhat less likely.
The US and its allies are all too aware of the consequences for their own interests of direct military involvement in Syria – based on what they see now in post-Qaddafi Libya.
That model in Syria would create greater instability in the core of the strategic Middle East; expanding regional sectarianism; chaotic borders adjoining Israel, Iraq and Turkey; extremist Islamism gaining a foothold in Syria; and the end of any potential diplomatic arrangement with Iran.
In Europe, there is no “attack Syria” pressure equivalent to the political demands brought to bear on French and Italian leaders to intervene in Libya last year, following the PR fiasco of their overt colonial-style disdain for the earlier uprising in Tunisia.
For Turkey, among the most active supporters of arming the opposition, Syria’s shoot-down of the Turkish plane could lead to even stronger calls for military intervention; so far, though, while Ankara’s call for a NATO “discussion” of the matter means risks of escalation continue, the uncertainty of whether the plane was over international or Syrian waters has allowed both governments to moderate their responses.
So at the moment it still appears unlikely the Obama administration would risk an attack on Syria without a UN Security Council endorsement. And that endorsement is simply not going to happen in the near future. China and Russia have both indicated they oppose any use of force against Syria, and so far they are both opposing additional sanctions as well.
Russian opposition to an attack on Syria goes beyond Moscow’s usual resistance to Security Council endorsement of intervention anywhere in the world. It goes to the heart of Russia’s strategic national interests, including its military capacity and its competition with the west for power, markets and influence in the Middle East.
Russia’s relationship to Syria more or less parallels the US relationship to Bahrain: Damascus is a major Russian trading partner, especially for military equipment, and most crucial of all, hosts Moscow’s only Mediterranean naval base (and only military base outside the former Soviet Union), in Tartus on Syria’s southern coast.
Certainly there are no guarantees. Politics still trumps strategic interests. The risk of a US/NATO attack on Syria remains, and the threat could be ratcheted up again in a moment. This isn’t about humanitarian concerns –neither the US nor any other country has ever used military force for purely humanitarian purposes.
But the “CNN factor” –the relentless depiction of all-too-real heart-wrenching suffering – creates a political reality that influences decision-making in Washington, London, Paris, Ankara and beyond. As the violence escalates in Syria, as more civilians, especially children, are killed, calls for intervention, some real and some cynical, escalate as well.
In the US and Europe, the media and politicians’ earlier embrace of the armed opposition has subsided somewhat as reports rise of opposition attacks and resulting civilian casualties. But anti-Assad propaganda remains dominant. And Washington is in election mode, so the pressure to “do something” is on the rise.
The calls for military intervention are coming from the media and some in Congress, from neo-cons who never gave up on their plans for regime change across the Arab world, and from hawkish liberal interventionists who again see military force as a solution to every human rights or humanitarian problem.
There are also prominent opponents of military force inside the White House and Pentagon, who recognize it would create worse problems for US interests (even if they don’t care much about the impact on Syrian civilians). Whether they can stand up to election-year “do something” pressures remains unclear.
The push-back by those in civil society who say no to military intervention, while refusing to accept the mechanical “enemy of my enemy is my friend” claims that the Syrian regime is somehow a fraternal bastion of anti-imperialist legitimacy, will be crucial.
Syria, resistance, anit-imperialism?
Syria’s position, geographic and political, and the resulting interest in it from outside actors, makes things very complicated. The country lies on the fault lines of the Middle East – from sectarian divides in war-battered Iraq and precariously-balanced multi-confessional Lebanon and across the broader region, to great power competition including the US and NATO vs. Russia, to the Arab-Israeli conflict, to the roles of non-Arab Turkey and Iran.
There is a crucial divergence between the role the Assad regime has played domestically and its regional position. As Jadaliyyaco-editor Bassam Haddad has written, “most people in the region are opposed to the Syrian regime's domestic behavior during the past decades, but they are not opposed to its regional role. The problem is the Syrian regime's internal repression, not its external policies.” That opinion could describe the view of many Syrians as well.
Of course unlike Egypt or Tunisia the target of Syria’s original non-violent protests was not a US-backed dictator but a brutal though somewhat popular leader at the center of the anti-western resistance arc of the Middle East.
Of course even if Assad had played a consistent anti-imperialist role in the region, Syrians would have every right and reason to challenge his regime’s brutality and denial of human rights. But the claim led some international activists to lionize the Syrian government as a bastion of anti-imperialism and therefore to condemn all opposition forces as lackeys of Washington.
In fact the regime’s reality is far different. Certainly the US views Syria, largely based on its alliance with Iran (and somewhat for its support of Hezbollah in Lebanon) as an irritant. But Damascus has never been a consistent opponent of US interests. In 1976 it backed a massive attack by right-wing Falangists and other Christian militias against the Palestinian refugee camp at Tel al-Zataar during Lebanon’s civil war. In 1991 Syria sent warplanes to join the US war coalition to attack Iraq in Operation Desert Storm. After 9/11 George W. Bush collaborated with the Assad regime to send innocent detainees such as Maher Arar to be interrogated and tortured in Syria.
It is also crucial to note which important US ally in the Middle East has been uncharacteristically silent regarding the Syrian uprising: Israel.
One would have expected Tel Aviv to be leading the calls for military intervention against Syria, the demands for regime change, the constant drumbeat of demonization and the calls for war. But Israel has been largely silent – because despite the rhetorical and diplomatic antagonism between the two, Syria has been a generally reliable and predictable neighbor.
The occasional border clash or small-scale eruption of violence aside, Assad has kept the border, and thus the economically strategic and water-rich Golan Heights, illegally occupied by Israel since 1967, largely quiescent. As late as 2009 Assad was offering Israel negotiations “without preconditions” over the Golan Heights.
And further, Assad is a known quantity; despite Syria’s close ties to Iran, Israel has little interest in a post-Assad Syria like today’s Libya, with uncontrolled borders, unaccountable militias, arms flooding in and out, rising Islamist influence, and a weak, illegitimate and corrupt government ultimately unable to secure the country. For Israel, the “anti-imperialist” Assad still looks pretty good.
Origins, impacts and consequences
The Syrian uprising that began in early 2011 was part of the broader regional rising that became known as the Arab Spring. Like their counterparts, Syria’s non-violent protesters poured into the streets with political/democratic demands that broke open a generations-long culture of fear and political paralysis.
Like those who mobilized against US-backed dictators in Egypt, Tunisia, and elsewhere, the Syrian protesters were both secular and religious, reflecting a wide diversity of backgrounds and opinions. There were calls for democratization, demands that long-silenced voices be heard and empowered, and for immediate and massive political changes.
For some that meant that the regime must end, some were willing to negotiate with the government without Assad, still others called for broad reforms, ending political repression and opening the political system, within the existing governing structures. But at first none called for international military intervention.
Then, like in Libya, some in the Syrian opposition, particularly military defectors, took up arms in response to the regime’s brutal suppression of the initially non-violent protests. The defensive use of arms soon morphed into a network of militias and fighters, largely unaccountable and uncoordinated – some of whom later began to call for military assistance.
Now some US and supporters of western military intervention in Syria, last year’s assault on Libya provides the model of how to respond to a human rights/humanitarian crisis. They believe it was a victory for human rights when a couple of European leaders proposed a no-fly zone, and part of the anti-Qaddafi opposition eagerly accepted their offer, and part of the Arab League and part of Europe and part of the Obama administration and most of NATO agreed.
With the fig leaf of Arab League approval (the African Union was sidelined as soon as it refused to support the military assault), the US/NATO warplanes quickly became the air force of the armed Libyan opposition, the “no-fly zone” was immediately transformed into an all-out air war and bombing campaign, and “protection of civilians” was instantly redefined as regime change.
But they were wrong to see it as a “human rights victory” then and they are more visibly wrong now. A year later, following the overthrow (and killing) of Qaddafi and the deaths of thousands of Libyans, the now-divided country struggles with out-of-control militias holding thousands of prisoners, torture, escalating violence, continuing attacks on sub-Saharan Africans and other foreigners, a virtually powerless government with more legitimacy in the West than at home, and a shattered national, social and physical infrastructure.
The impact of a military strike in Syria could be even worse. Syria’s conflict poses far more complex challenges than any of the earlier derailments from the non-violent mobilizations of the Arab Spring in Bahrain, Yemen or even Libya.
Inside the country, the nature of Syria’s diverse economy, its strong middle class, the once relatively small gap between Syrian wealth and poverty, all mean that the regime maintains some level of legitimacy despite years of repression against political critics. Bashar al-Assad appears to maintain significantly more support than did Muammar Qaddafi in Libya, for instance.
The Assad regime’s own minority status strengthens claims it is protecting other Syrian minorities. And the tight links between ruling family and the military, mean that despite significant numbers of increasingly high-level military defections, the government and top military command appear largely intact. If the defections, such as the high-visibility flight to Jordan of Syrian air force officer in their Russian-made MiG fighter plane, escalate, the military capacity of the regime will be seriously undermined. But so far, the military-government unity remains viable.
For ordinary Syrians, struggling to survive amid escalating fighting, with virtually no access to electricity, water or medical assistance in more and more cities, the only hope starts with ending the fighting. The best – probably the only – useful thing outside powers can do, would be to move immediately towards serious new diplomacy, in which supporters of both the regime and the armed opposition participate, with the goal of imposing an immediate ceasefire. Kofi Annan’s call for just such a diplomatic option could be the start, if Washington could be pressured to reverse its opposition.
Such a diplomatic channel – bringing together Iran and Russia on one side, the US, EU, Turkey and pro-western Arab monarchies on the other, under UN auspices – would not solve all the problems that led to the Syrian crisis.
The United Nations, particularly the veto-bound Security Council, remains thoroughly undemocratic, with US domination a longstanding challenge. This kind of diplomacy would likely not reflect all the diverse interests of the Syrian people – but it would stop the current escalation towards full-scale civil war, and perhaps open enough political space to re-empower the original indigenous non-violent democratic movements in Syria.
It will only work if it is kept out of the UN’s currently popular “responsibility to protect” (R2P) framework, which inevitably leads to outside military force.
The best the Annan plan could achieve would be to bring enough pressure to bear on the two sides (assuming the US/western/Arab monarchy side and the Russian/Iranian side could agree on a goal) to reverse the current military escalation and perhaps impose a lasting ceasefire, long enough to force real negotiations inside Syria between a re-empowered internal opposition and the regime on some kind of political transition. Finding agreement between the diplomatic sponsors, let alone between the two sides inside Syria, will obviously not be easy.
But only with an end to the war, will the original unarmed opposition forces have a chance to remobilize public support for the internal, non-violent protest movement for real change, reclaiming social movements for Syria’s own freedom and democracy, and reasserting Syria’s place in the Arab Spring.
Phyllis Bennis is a fellow of the Transnational Institute in Amsterdam and of the Institute for Policy Studies in Washington. Her books include Calling the Shots: How Washington Dominates Today’s UN.