Withdrawal Symptoms: The Bungling of the Iraq Exit

Rick Brennan. Foreign Affairs. Volume 93, Issue 6. Nov/Dec 2014.

In a speech at Fort Bragg on December 14, 2011, President Barack Obama declared that the U.S. military would soon depart Iraq, ending one of the longest wars in American history. The United States, Obama said, would leave behind “a sovereign, stable, and self-reliant Iraq, with a representative government that was elected by its people.” Four days later, the last U.S. military unit crossed from Iraq into Kuwait, and American armed forces transferred all their responsibilities to either the central government of Iraq, U.S. Central Command, or the U.S. embassy in Baghdad, completing the most complex handoff from military to civilian authorities in U.S. history.

The next day, Iraqi Prime Minister Nouri al-Maliki-who since 2006 had sought to enhance his personal interests and those of Shiite religious parties at the expense of Iraq’s Kurds and Sunni Arabs-secured an arrest warrant for Iraq’s Sunni vice president, Tariq al-Hashimi, accusing him of supporting terrorism. A crisis erupted when Hashimi’s Sunni-dominated political bloc boycotted the national unity government that Obama had so recently touted as inclusive and responsive to the Iraqi people.

That same week, 17 explosions rocked Baghdad, killing at least 65 people and wounding more than 200; al Qaeda in Iraq (AQI) later claimed responsibility. With Iranian encouragement, Maliki’s government began to systematically target Sunni elites on the basis of trumped-up charges of terrorism or alleged affiliation with the outlawed Baath Party. Sectarian violence soon erupted, and by May 2013, it had reached levels not seen since the waning days of the civil war that engulfed Iraq in the wake of the 2003 U.S. invasion.

Meanwhile, Maliki firmed up his grip on the Iraqi intelligence and security forces, replacing competent Sunni and Kurdish officers whom he mistrusted with Shiites personally loyal to him. He refused to appoint permanent ministers for defense, the interior, and Iraq’s National Security Council, instead controlling those ministries himself through an extraconstitutional organization called the Office of the Commander in Chief. In April 2012, the Kurdish leader Massoud Barzani warned that Iraq was moving back toward dictatorship-the one thing, he said, that might lead him to seek Kurdish independence.

Obama had declared an end to the war in Iraq, but the Iraqis hadn’t gotten the memo. By mid-2013, the country appeared to be coming apart at the seams-and the worst was yet to come. By the summer of 2014, Maliki’s misrule had hollowed out the country’s security forces and deeply alienated Iraq’s Sunnis, which made it much easier for the Sunni jihadist group the Islamic State of Iraq and al-Sham (ISIS, or the Islamic State), the successor to AQI, to cross the border from its strongholds in war-torn Syria and capture a number of major Iraqi cities. Isis has wantonly slaughtered religious minorities, Shiites, and any Sunnis who have stood in its way; imposed its brutal version of Islamic law on those unlucky enough to live in the swath of territory the group now holds; and released gruesome videos of militants murdering American and other Western hostages.

By any measure, the course of post-American Iraq has been tragic. But the tragedy is deepened by the fact that almost everything that has happened since 2011 was foreseeable-and, in fact, was foreseen by U.S. military planners and commanders, who years earlier cautioned against the complete withdrawal of the nearly 50,000 U.S. troops that still remained in Iraq in 2011. As a senior civilian adviser to the U.S. military in Iraq from 2006 through the end of 2011, I witnessed Obama and senior members of his national security team fail to reach an agreement with the government of Iraq that would have allowed a residual U.S. force to remain there temporarily, and also fail to establish a strategy for how to leave Iraq in a manner that would secure the gains made there during those years. Iraq, its neighbors, the United States, and the rest of the world are now paying the price of those failures.

Whatever lessons can be learned from that mistake won’t be of much help in Obama’s current effort to “degrade and ultimately destroy” ISIS. But those lessons might be applied directly to the question of how to wind down the United States’ even longer-running post-9/11 war, that in Afghanistan. There, Obama still has the chance to avoid making some of the same mistakes and miscalculations that have come back to haunt him in Iraq and that, if current policies remain unchanged, the United States is poised to commit all over again. To do so, Obama will have to summon the political courage to recognize his earlier errors and try not to repeat them. His administration must undertake a complete reassessment of the NATO mission in Afghanistan and the plan to withdraw all U.S. troops from the country by the end of 2016, long before most experts believe the Afghan government has any chance of maintaining security and stability on its own. At the moment, the final acts of the U.S. war in Afghanistan are following a script remarkably similar to the one that played out in Iraq; Obama must do all he can to arrive at a different ending this time around.

Tell Me How This Ends

Making the decision to go to war requires a profound sense of caution and a tremendous amount of planning. Wars often change countries’ internal political and social dynamics and affect both regional and international security. The way a war is fought shapes the postwar security environment. And long before the fighting begins, leaders must consider how it might conclude. As then Major General David Petraeus famously put it in March 2003, as U.S. forces battled their way to Baghdad: “Tell me how this ends.”

It soon became clear that the Bush administration and the U.S. military had failed to properly consider that question. Within 42 days of the initial U.S. invasion of Iraq, American forces had achieved all their combat objectives. But the Pentagon had done very little planning for postconflict stability and support operations, and U.S. forces were unprepared for the lawlessness that followed the collapse of the Iraqi government. Washington’s decisions to pursue a policy of de-Baathification, disband the Iraqi army, and back Shiite politicians with little interest in national reconciliation soon fed a ferocious Sunni insurgency.

Meanwhile, the determination of extremist Shiite militias to exact vengeance for decades of repression at the hands of Sunnis-along with the emergence of a brutal new Sunni jihadist group, AQI-led to extraordinary levels of bloodshed. By 2006, Iraq had descended into a full-blown sectarian civil war. Bush was left with two bad options: withdraw U.S. forces and allow the civil war to rage, or adopt a new strategy to restore basic security in Iraq, committing whatever resources it would take to get the job done.

Bush opted to double down, embracing a counterinsurgency strategy and a temporary “surge” of 30,000 additional U.S. forces. The additional U.S. troops, diplomats, and funding, along with a number of other factors-including the so-called Sunni Awakening, which saw Sunni tribes turn on AQI-pulled Iraq back from the brink of disintegration. By December 2008, the new U.S. strategy had yielded enough security to make political stability seem like a real possibility. Iraq was still a dangerous and dysfunctional place, but by the time Bush left office, he could credibly claim that the new approach had reversed Iraq’s slide into chaos and created the conditions necessary for the country’s survival and potential political, social, and economic development.

Still, two major obstacles stood in the way of a more definitive success. First was the sectarian divide. Maliki had failed to take any serious actions leading toward genuine Shiite-Sunni reconciliation. Instead, he used the success of the surge to solidify his power in Baghdad, all the while enjoying Washington’s firm support. But he mostly ignored American pleas to govern in a less divisive manner and find ways to bring the Sunni minority into the political process. Maliki had also failed to bridge the Arab-Kurdish divide and instead sought to weaken the Kurdistan Regional Government and its security forces. Finally, Maliki allowed Iran to use Iraqi territory to arm, train, and equip hard-line Iraqi Shiite militias. All of this set the stage for the rapid advance of ISIS this past summer and the potential disintegration of the country.

Second, the 2008 Strategic Framework Agreement and an associated security agreement between Iraq and the United States-which allowed U.S. forces to stay in Iraq beyond the end of that year, when the UN resolution that sanctioned their presence would expire-set a timetable for the eventual withdrawal of all U.S. troops, but it failed to conclude with a permanent status-of-forces agreement to govern U.S. military activities. The temporary security agreement stipulated that the United States would withdraw its forces from all population centers by the end of 2009 and from the entire country by the end of 2011. To secure those terms, Washington had to drop its insistence that U.S. forces enjoy complete immunity from Iraqi law. Instead, in somewhat ambiguous terms, the agreement gave Iraqi authorities legal jurisdiction over cases in which U.S. service members were accused of committing serious, premeditated felonies while off duty and away from U.S. facilities.

In his memoir, Duty, published earlier this year, former U.S. Secretary of Defense Robert Gates revealed that Pentagon lawyers strongly opposed the compromise. But Gates explains that he believed it was worth the risk if it meant that U.S. forces could stay in Iraq past 2008. Commanders in the field were also comfortable with the compromise; after all, since members of the U.S. armed forces are on duty 24 hours a day and are not permitted to leave their bases unless on a mission, there was little chance that an American marine or soldier would ever wind up in the hands of Iraqi authorities.

According to Gates, both Washington and Baghdad believed the 2008 agreement represented an interim step that would be modified before the 2011 withdrawal deadline in ways that would allow some U.S. troops to remain in Iraq to advise and assist their Iraqi counterparts. But in the years that followed, uncertainty about the Obama administration’s willingness to leave a residual force in Iraq, the turbulent Iraqi political system, and the sensitive issue of legal immunity for U.S. service members created serious stumbling blocks to developing a longer-term arrangement.

We Can’t Go On, We’ll Go On

Just over a month after taking office in 2009, Obama delivered a major speech at Camp Lejeune reaffirming his campaign pledge to end the U.S. war in Iraq and laying out a timetable for withdrawal consistent with Bush’s agreement to pull all U.S. forces out of Iraq by the end of 2011. At the same time, however, Pentagon officials were telling U.S. military leaders in Iraq that the president remained open to the idea of keeping troops there beyond 2011 for noncombat missions if doing so were necessary to secure the gains made in recent years. As a result, the military had to plan to strictly abide by Bush’s 2008 agreement (and thus also fulfill Obama’s campaign promise to end the U.S. war) while quietly developing other options just in case the president chose to modify his policy and renegotiate the agreement.

By late 2009, General Raymond Odierno, the commander of U.S. forces in Iraq, concluded that the goals of U.S. policy in Iraq could not be achieved by the end of 2011. He shared this assessment with officials at U.S. Central Command and the Pentagon and with the staff of the National Security Council. He and his staff also provided candid reports and briefings, classified and unclassified, to members of Congress. Despite the efforts of Odierno and others, however, a large gap had opened up between the strategic goals articulated by the Obama administration and the resources and time the White House was willing to commit to achieving them.

Domestic politics in Iraq also complicated the picture: parliamentary elections were set to take place in March 2010, and the Obama administration decided to postpone discussions with Iraqi officials about keeping any U.S. forces in the country until after a new government had taken shape. But the elections did not prove to be the clarifying moment the administration had hoped for: instead, they devolved into a divisive legal and political battle that took nine months to resolve. Finally, in November 2010, Iraq’s parliament appointed Maliki to a second term as prime minister. But the political fight had fostered animosity and a lack of trust throughout the Iraqi political system, aggravating deep sectarian divisions within the parliament. Soon after forming a government, Maliki broke many of the promises he had made to secure his election. The result was political paralysis, a condition that would later undermine the prospects of resolving the question of a post-2011 U.S. presence in Iraq.

If You Leave Me Now

In September 2010, as the squabbling continued in Baghdad, I helped a group of U.S. military planners conduct an internal assessment of the political, economic, and security situation in the country. Their report painted a fairly grim picture of a country that had emerged from chaos in 2008 only to find itself extremely vulnerable to many enduring threats and pressures. The assessment noted that most Iraqi leaders continued to pursue their agendas through politics and had resisted a return to violence. But the divisive 2010 elections and Maliki’s marginalization of his political opponents and abuse of power raised serious concerns about whether Maliki would place sectarian interests aside and lead an inclusive government. The report warned that in the absence of sectarian reconciliation, Sunni-controlled portions of Iraq and Syria could emerge as a safe haven for terrorists and serve as a breeding ground for a revived Sunni insurgency.

Iraq had made substantial economic progress, but public expectations continued to outpace the central government’s ability to deliver essential services and foster economic stability and growth. The Iraqi economy remained overly dependent on oil revenue, the report said, and Baghdad was planning future spending based on unrealistic projections of future growth. Although the oil industry was a major source of funding for the government, and thus financed public-sector employment, it directly employed only two percent of the Iraqi work force, leaving somewhere between 45 and 60 percent of the work force either underemployed or unemployed. The lack of employment created a major source of social discontent and unrest, especially among young men of military age.

The analysis deemed Iraq’s security environment to be stable but fragile, a judgment that was broadly shared by both military and civilian leaders in the Pentagon. Although AQI had been all but defeated in Iraq, by the end of 2009, it had established a safe haven in Syria and was beginning to rebuild and rebrand itself. (It is important to note that the military planners, although deeply concerned about AQI, did not anticipate the group’s transformation into the jihadist army known today as ISIS-a change that took place between 2012 and 2014 as a result, in part, of the Syrian civil war.)

Meanwhile, Shiite militias-armed, trained, and equipped by Iran-enjoyed strong ties to Iraqi Shiite political parties and constituted a shadow government of sorts that “could one day pose an existential threat to the government of Iraq,” the assessment stated. U.S. military planners also worried about the potential for violence between Arabs and Kurds in the disputed territory that the Kurds consider their historic homeland and where they enjoy a great deal of autonomy; a struggle for control of the oil-rich city of Kirkuk would be the most likely trigger for a conflict.

Even after years of assistance and training from U.S. advisers, the Iraqi government and security forces were hardly prepared to face such threats. Between 2005 and 2011, the U.S. military provided quarterly reports to Congress warning that the Iraqi military suffered from significant shortfalls that would hinder its ability to defend the country against external threats. The Iraqi security forces were plagued by weak intelligence collection, analysis, and sharing; an inability to sustain combat operations; poor maintenance of equipment and weapons; the lack of a well-developed training program, or even a culture of training; poor command and control of its forces; a lack of sufficient intelligence, surveillance, and reconnaissance assets; and a very limited ability to conduct counterterrorism operations without direct support from U.S. Special Forces. The Iraqi air force was even worse off. It had no ability to provide lethal support to Iraqi ground forces in combat; it couldn’t do much besides transport forces from one air base to another.

All this evidence led U.S. military planners in Iraq to one clear conclusion: if U.S. forces completely withdrew by the end of 2011, it would be very difficult for the Iraqis to maintain the fragile gains made since 2007. Strategic failure had been delayed but was “still possible,” the 2010 internal assessment concluded. In the absence of U.S. forces and concerted political pressure from Washington, the central government in Baghdad would become ever more corrupt, sectarian, and acquiescent to Tehran, setting the stage for a revival of the Sunni insurgency, a resurgence of aqi, and the end of the relative stability that the United States had worked so hard to foster.

If that sounds familiar, that is because it is an accurate description of the current situation in Iraq. Put bluntly, U.S. military planners anticipated with eerie accuracy the dreadful state of affairs that exists there today.

A Moderate Risk

According to numerous reports, including accounts published by former Obama administration officials, U.S. military planners believed that to prevent the disaster they feared would engulf Iraq if the central government had to stand on its own after 2011, a significant number of American forces-around 24,000-would have to remain in Iraq past 2011. The proposed plan called for the military to reassess the situation sometime between 2014 and 2016 to determine whether a continuing presence was necessary to achieve the goals approved by both Bush and Obama. The planners judged that this course presented a “moderate risk” of harm to U.S. forces and of mission failure-a level of uncertainty they deemed acceptable given the importance of the objectives.

The planners were requesting a continued investment in a place that most Americans, including political elites across the ideological spectrum, hoped would never again consume much of Washington’s time, energy, or money. But the planners believed that the wide range of challenges facing Iraq-and the terrible nature of the worst-case scenario-justified the expense.

For Iraq to sustain the progress made in the security sector, they argued, U.S. forces would need to continue to advise, train, and assist all elements of Iraq’s security forces. The planners also argued that the United States needed to keep its forces in Iraq to demonstrate Washington’s commitment to Baghdad; to help counter what the 2010 assessment described as “Iran’s malign influence”; and to have a moderating effect on Maliki’s sectarian inclinations.

The U.S. military would also need to help Iraq maintain control of its airspace until it was capable of doing so on its own. Since 2003, the United States had protected Iraqi airspace, and the planners believed that U.S. forces should continue to do so with an F-16 squadron stationed at Al Asad Air Base, in Anbar Province. Although U.S. planners considered the Iraqi Special Operations Forces to be high performing by regional standards, they concluded that their counterterrorism missions still required U.S. assistance in intelligence and aviation support, especially for night operations.

U.S. military planners also believed that American forces would have to remain on the border of the Kurdish region to help prevent conflict between the Iraqi security forces and the Kurdish forces known as the Pesh Merga. The planners further noted that al Qaeda militants often traveled through the corridor that runs between the city of Mosul, in northern Iraq, and Diyala Province, in the country’s east. To secure the area, the military planners recommended that U.S. forces continue to work alongside Iraqi and Kurdish forces to jointly man 22 checkpoints along that route.

Running the Numbers

In January 2011, Gates met with James Jeffrey, the U.S. ambassador to Iraq; Admiral Mike Mullen, the chairman of the Joint Chiefs of Staff; and General Lloyd Austin, the commander of U.S. forces in Iraq. As Gates recounts in his memoir, Austin argued that he would need at least 20,000 troops to remain in Iraq after 2011 for a transitional period that would last between three and five years. Anticipating resistance from the White House to the idea of such a large residual force, Gates directed Austin to prepare options below 20,000 troops. And indeed, in April, Obama directed Austin to develop a plan that would result in a residual force of just 8,000 to 10,000 troops and to identify the missions that a force of that size could realistically accomplish.

In early June, Obama participated in a secure videoconference with Maliki-his first conversation with the Iraqi prime minister in over a year. According to an administration official, Obama conveyed the U.S. desire to maintain a partnership with Iraq but did not discuss any specific force numbers. Meanwhile, Maliki was discussing with other Iraqi leaders the idea of allowing 8,000 to 20,000 U.S. troops to remain in Iraq, according to remarks made in August 2011 by Samir Sumaidaie, Iraq’s ambassador to the United States at the time, in an interview with Foreign Policy. Most of those leaders understood that Iraq was not yet ready for the U.S. military to totally disengage, but they were determined to avoid any infringement, real or perceived, on the country’s sovereignty. A recurring theme in the discussions between Maliki and U.S. negotiators was the Iraqis’ desire for their American “guests” to be subject to Iraqi law-the same issue that had dogged negotiations between Maliki and Bush in 2008.

In August, according to Jeffrey, Obama informed him that he was free to start negotiations with the Iraqis to keep 5,000 U.S. service members in Iraq: 3,500 combat troops who would be stationed on yearlong tours of duty and 1,500 special operations forces who would rotate in and out every four months. This residual force would include support personnel for half a squadron of F-16s that would be stationed at Al Asad Air Base. Obama rejected the military’s call for a large-scale presence to continue training the Iraqi army and to secure the Arab-Kurdish border area near Kirkuk. Obama believed that the number of troops he proposed would allow the United States to continue collecting intelligence, cooperating with the Iraqis on counterterrorism, training elements of the Iraqi army, and periodically monitoring the checkpoints established three years earlier in the Kurdish border region.

But Obama also made it clear that his plan would require the Iraqi parliament to formally request that the U.S. military stay in Iraq and to agree to a status-of-forces agreement that would grant legal immunity to all U.S. troops remaining in Iraq beyond 2011. In early September, U.S. Deputy Secretary of State Bill Burns visited Iraq to press Maliki on both those issues. According to a former administration official familiar with what happened during the meeting, Maliki told Burns that although he could likely persuade Iraq’s parliament to request a residual force, anyone who believed that the parliament would approve a status-of-forces agreement that included complete immunity did not understand Iraqi politics. Instead, Maliki proposed signing an executive memorandum granting immunity without the need to gain parliamentary approval. White House lawyers rejected that offer, arguing that for any such agreement to be legally binding, it would have to be formally ratified by the Iraqi parliament.

In early October, as Maliki had predicted, the parliament approved the request for an extended U.S. military presence but declined to grant legal immunity to U.S. military personnel. Later that month, Obama told Maliki that all U.S. troops would leave Iraq by the end of 2011, in fulfillment of the terms of the agreement signed by the Bush administration in 2008.

A number of commentators have concluded that the Obama administration was negotiating in bad faith, making an offer that it knew would be politically toxic in Iraq. Had Obama wanted to maintain a residual force in Iraq, he could have accepted Maliki’s compromise proposal. This compromise would have incurred some risk, since Iraqi law clearly required parliamentary approval. However, in the nearly three years since Bush had agreed to a similar compromise, no U.S. service member or civilian official stationed in Iraq had been charged with violating an Iraqi law. It is also worth pointing out that the U.S. military personnel stationed in Iraq today count on a promise of immunity backed only by a diplomatic note signed by the Iraqi foreign minister-an assurance even less solid than the one Maliki offered (and Obama rejected) in 2011.

Degrade and Destroy

After Obama announced his decision, U.S. commanders in Iraq conducted what they called a “war termination assessment,” to measure the degree to which the military had achieved its objectives. According to military planners who worked on the assessment, the large majority of those goals could best be described as incomplete, and some of them would take many years-even a generation-to achieve. The Iraqi military, for example, was still three to five years away from being able to independently sustain the gains made during the past four years.

Many of the goals remained unfulfilled thanks to Iraq’s internal divisions and the poor performance of Iraqi leaders; others were stymied by neighboring countries such as Iran. But the military planners’ scorecard made one thing perfectly clear: by 2011, enough information was available to conclude that absent a significant U.S. military presence, within a few years, the situation in Iraq was likely to deteriorate-perhaps irreversibly.

Of course, at that point, few foresaw the significant negative effect that the Syrian civil war would soon have on the security situation in Iraq. However, had a residual U.S. force stayed in Iraq after 2011, the United States would have had far greater insight into the growing threat posed by ISIS and could have helped the Iraqis stop the group from taking so much territory. Instead, ISIS’ march across northern Iraq took Washington almost completely by surprise.

Iraq now presents Obama with no good options-as it did Bush before him. Obama’s plan is for the United States to lead an international coalition to “degrade and ultimately destroy” ISIS. The U.S. military will provide intelligence, a limited number of U.S. advisers, and air support to ground forces that will come from other countries. This plan is unlikely to succeed, not least because it creates few incentives for the other partners in the coalition to accept the costs and risks that the United States is unwilling to take on itself. Unless the United States decides to take more direct action, including the deployment of some U.S. combat troops and special operations forces, the rebooted “coalition of the willing” in Iraq will likely prove to be little more than a coalition of the uncommitted.

Déjà Vu

In Afghanistan, meanwhile, the administration still has a chance to avoid a repeat of its Iraq experience. Unfortunately, it is not clear whether the appropriate lessons have yet been learned.

For example, there is a growing mismatch between the United States’ objectives in Afghanistan and the resources and time that Washington has given its military forces and diplomats to achieve them. The stated goal of the NATO mission is “to create the conditions whereby the Government of Afghanistan is able to exercise its authority throughout the country, including the development of professional and capable Afghan National Security Forces.” But little evidence exists to suggest that NATO will be able to achieve that goal by the end of 2016, when all U.S. and NATO forces are scheduled to depart. In fact, a congressionally mandated independent assessment of the Afghan security forces completed in January 2014 by the Center for Naval Analyses identified the same types of capability gaps that existed in the Iraqi security forces in 2011. Most credible estimates suggest that those gaps cannot be filled until at least 2018.

After the planned departure of NATO and U.S. forces in 2016, the security situation in Afghanistan will likely deteriorate and could ultimately pose an existential threat to the government in Kabul. Unless something changes, the disaster that has unfolded in Iraq in recent months is on track to repeat itself-and in a few years, Washington might face yet another wrenching decision about whether to reengage militarily in a combat zone that Americans thought they had left behind for good.

Before heading down that route, the Obama administration should conduct a comprehensive strategic assessment that includes a detailed analysis of how the Afghan security environment will likely develop between 2014 and 2018. Meanwhile, the Pentagon should weigh which of Washington’s objectives in Afghanistan have been achieved and measure the risks of withdrawing U.S. forces before the remaining objectives have been met, developing a new strategy for Afghanistan and the region to mitigate the costs and risks. The United States should lead the same type of strategic review within NATO to determine the extent to which it is necessary and feasible to maintain a NATO training mission in the country beyond 2016.

If Obama decides to stick with his current plan to withdraw from Afghanistan by the end of 2016, his administration must develop a clearer strategy for how to maintain the gains made there without U.S. and NATO forces on the ground. At the moment, it is unclear how the United States or its allies intend to help the Afghan government maintain security on its own. The plan to withdraw completely seems blind to the transformational-and almost certainly negative-impact that the exit of U.S. and NATO forces and capabilities will have on Afghanistan’s internal political and security dynamics.

Even without pursuing a major strategic overhaul, the administration should at the very least take the crucial step of creating a so-called transitional embassy in Kabul. After U.S. forces withdraw, the U.S. embassy should house a “dual-hatted” chief of security assistance: a military officer who would manage the State Department’s role in facilitating arms sales to Afghanistan and also advise, train, and assist Afghan security forces. (In 2011, U.S. military officials recommended creating such a position within the U.S. embassy in Baghdad in the wake of the American withdrawal, but that idea was rejected by the State Department and the White House.) Creating this position would allow some U.S. military infrastructure to remain in place, not only to aid Afghan security forces but also to allow for a more rapid redeployment of U.S. forces should the transition go badly.

In critical respects, Afghanistan today looks quite a lot like Iraq did in 2011. The United States prepares to withdraw its forces while a weak, divided, corrupt central government sputters and flails. Meanwhile, an extremist insurgent group grows stronger in safe havens across the border in a fractious, unstable state. Just substitute Kabul for Baghdad, the Taliban for ISIS, and Pakistan for Syria, and the pictures line up quite well. And without a dramatic shift in strategy and policy, a few years after U.S. and NATO forces leave Afghanistan, the country will look quite a lot like Iraq does today. The Obama administration must act swiftly, or else it risks losing a second war by once again departing before the job is done.