There was a fascinating article in last Monday’s The Wall Street Journal entitled “Legal Fears Slowed Aid to
Syrian Rebels.” The article deserves
some comment because of what it says about how foreign policy is being made in
the Obama administration and the self-imposed limitations that the
Administration’s view of international law puts on our policy and our
policy-making.
The first three paragraphs set the
background:
“A string
of cautionary opinions from administration lawyers over the last two years
sheds new light on President Barack Obama’s halting and ultimately secretive
steps to provide military support to rebels in Syria's deadly civil war.
Members
of the so-called Lawyers Group of top legal advisers from across the
administration argued that Mr. Obama risked violating international law and
giving Syrian President Bashar al-Assad the legal grounds—and motivation—to
retaliate against Americans, said current and former officials.
The
group's arguments in part help explain why the White House agonized over Syria
intervention and why Mr. Obama eventually opted to provide military aid to the
rebels covertly through the Central Intelligence Agency, to help mitigate the
legal risks and keep the U.S.'s profile low.”
The article continues, a little
later:
“U.N.
Security Council resolutions that could authorize outside intervention in Syria
have been blocked by Russia, which was critical of the North Atlantic Treaty
Organization-led mission in Libya in 2011, constraining the U.S.'s legal
options.”
As I have said before, I think we
are foolish to accept the idea that U.N. Security Council resolutions are the
only way intervention can be justified. Voting
in the United Nations is seldom about law and mostly about self-interest. Are we really willing to give a Russia or a China,
voting on the basis of their own self-interest, a veto over what is or is not legal
under international law, especially when we follow such “law” when we decide
what we can and cannot do in international affairs? I would say “No,” but the article seems to
indicate that some in the Administration would not agree with me.
“U.S.
officials give two possible explanations as to why the lawyers were cautious. Some say it reflected the extent to which Mr.
Obama and his legal advisers sought to draw a distinction with the Bush
administration and its approach to international law.”
I am not sure that “not Bush” is a
good basis for legal analysis, though I would not be surprised if it appeals to
President Obama.
“A
reconstruction of the debate over arming the Syrian opposition shows how much
administration lawyers played a cautionary role in the process, parrying calls
for more assertive U.S. action by citing the risks of skirting international
law, triggering a shooting war and setting legal precedents that could be cited
by other countries, such as Russia and China. …
Key
members of the [legal] group raised objections soon after the start of the
Syrian uprising, in March 2011, when some in the State Department argued for
recognizing the opposition and severing ties to the regime, said current and
former officials.
Then-State
Department legal adviser Harold Koh and other administration lawyers argued
that could be viewed as meaning the U.S. no longer recognized Mr. Assad's
government, officials involved in the debate said.
That,
they argued, could relieve him of his responsibilities under international law
such things as the use of chemical weapons under his government's control.”
The idea that our not recognizing
President Assad’s government would somehow mean Syria was no longer prohibited
under international law from using chemical weapons does not make sense to
me.* In any case, as it happened, the
United States did continue to recognize President Assad’s government, and they
used chemical weapons anyway. President
Assad might have used our lack of recognition as a public relations excuse, but
he was always going to make his decision on whether to use chemical weapons based
what he thought he needed to do to stay in power and what his supporters, such
as Russia, would let him get away with.
“…[T]he
Lawyers Group questioned whether the State Department could provide military
support directly to forces fighting a war in which the U.S. wasn't formally
engaged. Lawyers also told the White
House that providing military aid would allow Mr. Assad under international law
to declare Americans combatants, whether in military uniforms or not, and
target them for taking sides in another country's civil war.
The
lawyers said even a State Department proposal to supply rebel fighters with
food rations could give Mr. Assad legal grounds go after Americans.”
If President Assad goes after
Americans, it will not be because he has “legal grounds” to do so. It will be because he thinks he can get some
advantage out of doing so and because he thinks the United States is too weak
to do anything about it.
“The
legal debate over providing military support to the rebels came to a head
earlier this year.
In
February, Secretary of State Kerry was poised to fly to Rome where officials
hoped he would announce a U.S. decision to, for the first time, provide
nonlethal military equipment along with halal meals and medical kits, directly
to the Western-backed rebel army of Gen. Salim Idris, current and former U.S.
officials said.
At the
time, the administration balked at authorizing the State Department to provide
military equipment: Using the State Department to do so was "legally
available" under domestic law, but questionable under international law. As a result, Mr. Kerry announced only plans to
provide food rations and medical kits, disappointing the opposition.
Some
lawyers continued to raise objections to even the pared-down plan, arguing that
Gen. Idris's Free Syrian Army should deliver the supplies only to unarmed
civilians, instead of giving them to fighters, said an official briefed on the
matter.”
Lawyers (or people) who think that
supplies can be delivered with these kinds of limitations in a war zone, don’t
live in the real world and shouldn’t be giving advice to people who do.
“While
the smaller CIA footprint may reduce the risk that Mr. Assad will launch
attacks on U.S. personnel arming and training rebels mainly in Jordan and
diplomats and aid workers in other countries such as Lebanon, current and
former officials say the legal risks remain.
The
lawyers told the White House that Mr. Assad was under no obligation to draw a
distinction between the CIA and other branches of the U.S. government.
‘Once
Assad claims a right to attack American citizens, we're in a whole new game,’ a
former official said.”
The way to stop Bashar al-Assad from
attacking American citizens, if it comes to that, is with strength, not legal
briefs and lawyers arguing fine points of international law.
I have no problem with
international law. It does many good
things. But people need to understand
its limitations. We can’t be limited by
an international law that allows Vladimir Putin’s Russia to decide which
international interventions are permissible and which are not. Similarly, we can’t be the only ones
following international law. We can be a
leader, but we can’t be foolish. Reality
must prevail over good intentions. My
worry is that too many of the Administration’s lawyers seem to be focusing on
the latter instead of the former.
--------
* If that were true, it certainly wouldn’t say much about international law.
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