Dr. Andrew R Hom, University of Edinburgh
In late June 2016 the ESRC-funded Moral Victories project and KCL’s Department of Defence Studies convened a workshop, entitled ‘Degrade and Destroy: Winning the War against Daesh?‘, which brought together leading experts from the academic, military, policy, and NGO communities to consider the problem of confronting DAESH (ISIS) – both in terms of the results and consequences of extant approaches and of possible alternatives. This day-long meeting was designed to foster knowledge exchange and impact by bringing multiple sectors together for a sustained dialogue. It featured spirited discussions about the use of air power in counterterrorism operations, the linkages between DAESH and the greater Syrian conflict, the humanitarian toll of that conflict as well as regional counterterrorism operations, and the intriguing but largely overlooked question of whether Daesh is an enemy or a threat to the UK and its allies. This latter point in particular prompted some interesting discussions amongst the diverse group who attended.
One of these debates focused on whether DAESH should be seen as primarily a political rather than a military or strategic problem. Is DAESH a properly apocalyptic organisation bent on ‘hastening’ a global cataclysm or is it actually pursuing a territorial caliphate as an alternative to the Western states system? Although elements of both intermingle in DAESH propaganda, they are two distinct objectives with very different implications. If thoroughly apocalyptic, DAESH would likely present a genuinely existential problem, although even here a military response plays directly into its apocalyptic vision. Viewed as more traditionally political in the sense of governing territory, DAESH looks like an adaptable, goal-driven organisation availing itself of various means and messages.
After the fall of Mosul and its initial declaration of a caliphate, DAESH first tried to establish administrators in its territories and to project power to the rest of the world. While the specific means of accomplishing these were no doubt repugnant (e.g. brutal Sharia governance at home and hostage executions turned into spectacles), at issue here is their links to DAESH’s ultimate ends. Indeed, DAESH proved inept at public administration and management – it could not distribute public goods effectively and Sharia law did not enable a viable alternative to a social welfare platform. However, it was only after coalition airstrikes began to reduce DAESH’s territorial gains that its rhetoric shifted toward international terrorism as a religious duty. This supports a trend long known to terrorism experts, which is that attacks abroad signal the weakening of an organisation at home and its pending failure as a political programme. Once again this highlights the fundamental importance of a clear vision of what winning a confrontation with DAESH actually means. Air strikes have been successful at checking DAESH’s territorial ambitions, yet they have also driven DAESH toward a strategy of international terror. These paradoxes of military superiority highlight a parallel question: should we respond to violent non-state actors as if they were states themselves, or do asymmetric problems require novel and perhaps asymmetric responses?
Conventional military power has little effect on the ‘caliphate of the mind’, which DAESH spreads with remarkable effectiveness using social and traditional media. Regardless of the material situation on the ground, such propaganda will continue to appeal to young, marginalised, and misogynistic young men who seek a combination of thrill-seeking and meaning-making. One way for the UK and allied governments to resist the organic diffusion of the Jihadi’s claim to fame is to: 1) resist the urge to invoke overblown, national security rhetoric in the wake of localised or small scale attacks, as this valorises the actions of individuals and small groups; and 2) adapt Cold War programmes of ‘civil defence’ or preparedness protocols to train citizenries to employ standard response procedures in active shooter and rudimentary assault situations. The aim here is to reduce rather than magnify the material and political effects of terrorists’ actions and to focus on societal resilience rather than on large-scale transformations of regional and international political, legal, and strategic orders. It is also a shift that would likely deliver significant cost savings.
Going further, Western governments might even consider an ‘asymmetric’ means of engaging the ‘global Muslim subject’ by issuing a blanket apology for the War on Terror – not as an admission of defeat or sole guilt but as an unexpected step that requires dialogue while also recognising the global importance of Islam as a faith and Muslims as a people who have been disproportionately affected by powerful states’ response to the actions of a razor thin minority of their co-religionists. A public apology flies in the face of the accepted logics and conventional wisdom about the war on terror, a fact viewed by many at the meeting as its strongest endorsement.
Thinking about the politics of confronting DAESH returns us to a central question: Does DAESH represent an actual material and existential threat to the UK and its allies? DAESH is clearly an enemy of the systems, values, and politics enshrined in Western, liberal democratic states. Yet this is not the same as a threat. There was a consensus in our meeting that distinguishing more carefully between enemies and threats would help clarify the menu of political and strategic options for dealing with DAESH and similar actors. Terror attacks abroad and territorial gains within the Levant – especially within two struggling states such as Syria and Iraq, whose issues the UK and its allies helped create and have displayed little facility in resolving – do not rise to the level of a national or international security threat, except for when Western governments treat them as such and act accordingly. Threats require urgent security responses, enemies do not – as was ably demonstrated by the UK and its allies throughout much of the Cold War.
In addition to reframing thinking and discourse in a way that provides greater room for manoeuvre, distinguishing DAESH along these lines offers the opportunity to focus on the sorts of long-term conditions that enable terrorist organisations to emerge in the first place, conditions that are often closely linked to state failure, economic inequalities, and large-scale humanitarian disasters. It would also allow states that are party to the UN Refugee Convention, as the UK is, to begin think about how to meet their obligations to the international community’s most vulnerable peoples without framing this issue as a matter solely of terrorism and security. In general, it would allow the UK and its allies much greater freedom to deliberate how to meet emerging adversaries and issues like DAESH with a full set of political tools rather than only the pointy tips.
Although particular groups will rise and fall, regional and international terrorism are likely here to stay. Yet while specific tactics and dispositions will surely evolve, at root terrorism represents a remarkably narrow and indeed brittle approach to territorial control, political power, and international recognition. Facing a problem that is both sticky and limited, and combined with the underwhelming record of the post-9/11 years, it makes sense for leading states like the UK and its allies to explore more supple forms of response. One way to do this is to re-inject politics, understood in the most expansive sense, into counterterrorism.