How Bush Sold the War

By Douglas J. Feith
Tuesday, May 27, 2008

In the fall of 2003, a few months after Saddam Hussein's overthrow, U.S. officials began to despair of finding stockpiles of Iraqi weapons of mass destruction. The resulting embarrassment caused a radical shift in administration rhetoric about the war in Iraq.

President Bush no longer stressed Saddam's record or the threats from the Baathist regime as reasons for going to war. Rather, from that point forward, he focused almost exclusively on the larger aim of promoting democracy. This new focus compounded the damage to the president's credibility that had already been caused by the CIA's errors on Iraqi WMD. The president was seen as distancing himself from the actual case he had made for removing the Iraqi regime from power.

This change can be quantified: In the year beginning with his first major speech about Iraq – the Sept. 12, 2002 address to the U.N. General Assembly – Mr. Bush delivered nine major talks about Iraq. There were, on average, approximately 14 paragraphs per speech on Saddam's record as an enemy, aggressor, tyrant and danger, with only three paragraphs on promoting democracy. In the next year – from September 2003 to September 2004 – Mr. Bush delivered 15 major talks about Iraq. The average number of paragraphs devoted to the record of threats from Saddam was one, and the number devoted to democracy promotion was approximately 11.

The stunning change in rhetoric appeared to confirm his critics' argument that the security rationale for the war was at best an error, and at worst a lie. That's a shame, for Mr. Bush had solid grounds for worrying about the dangers of leaving Saddam in power.

In the spring of 2004, with the transfer of sovereign authority to the Iraqis imminent, the president was scheduled to give a major speech about Iraq. Defense Secretary Donald Rumsfeld received an advance draft and he gave it to me for review. In keeping with the new trend, the drafted speech focused on the prospects for Iraqi democracy.

White House officials understandably preferred to declare affirmative messages about Iraq's future, rather than rehash the government's intelligence embarrassments. Even so, I thought it was a strategic error for the president to make no effort to defend the arguments that had motivated him before the war. Mr. Bush's political opponents were intent on magnifying the administration's mistakes regarding WMD. On television and radio, in print and on the Internet, day after day they repeated the claim that the undiscovered stockpiles were the sum and substance of why the U.S. went to war against Saddam.

Electoral politics aside, I thought it was important for national security reasons that the president refute his critics' misstatements. The CIA assessments of WMD were wrong, but they originated in the years before he became president and they had been accepted by Democratic and Republican members of Congress, as well as by the U.N. and other officials around the world. And, in any event, the erroneous WMD intelligence was not the entire security rationale for overthrowing Saddam.

On May 22, 2004, I gave Mr. Rumsfeld a memo to pass along to National Security Adviser Condoleezza Rice and the president's speechwriters. I proposed that the speech "should deal with some basics – in particular, why we went to war in the first place." It would be useful to "make clear the tie-in between Iraq and the broader war on terrorism" in the following terms: The Saddam Hussein regime "had used WMD, supported various terrorist groups, was hostile to the U.S. and had a record of aggression and of defiance of numerous U.N. resolutions."

In light of 9/11, the "danger that Saddam's regime could provide biological weapons or other WMD to terrorist groups for use against us was too great" to let stand. And other ways of countering the danger – containment, sanctions, inspections, no-fly zones – had proven "unsustainable or inadequate." I suggested that the president distinguish between the essential U.S. interests in Iraq and the extra benefits if we could succeed in building democratic institutions there: "A unified Iraq that does not support terrorism or pursue WMD will in and of itself be an important victory in the war on terrorism."

Some of the speech's rhetoric about democracy struck me as a problem: "The draft speech now implies that we went to war in Iraq simply to free the Iraqi people from tyranny and create democracy there," I noted. But that implication "is not accurate and it sets us up for accusations of failure if Iraq does not quickly achieve 'democracy.'"

As was typical, the speech went through multiple drafts. Ms. Rice's office sent us a new version, and the next day I wrote Mr. Rumsfeld another set of comments – without great hope of persuading the speechwriting team. The speech's centerpiece, once again, was the set of steps "to help Iraq achieve democracy." One line in particular asserted that we went to Iraq "to make them free." I dissented:

- "This mixes up our current important goal (i.e., getting Iraq on the path to democratic government) with the strategic rationale for the war, which was to end the danger that Saddam might provide biological or [other] weapons of mass destruction to terrorists for use against us."

- "There is a widespread misconception that the war's rationale was the existence of Iraqi WMD stockpiles. This allows critics to say that our failure to find such stockpiles undermines that rationale."

- "If the President ignores this altogether and then implies that the war's rationale was not the terrorism/state sponsorship/WMD nexus but rather democracy for Iraqis, the critics may say that he is changing the subject or rewriting history."

Again, I proposed that the president distinguish between achieving our primary goal in Iraq – eliminating a security threat – and aiming for the over-and-above goal of democracy promotion, which may not be readily achievable.

Mr. Bush gave his speech at the Army War College on May 24, as Iraq was entering into the last month of its 14-month occupation by the U.S. The president declared: "I sent American troops to Iraq to defend our security, not to stay as an occupying power. I sent American troops to Iraq to make its people free, not to make them American. Iraqis will write their own history, and find their own way."

I had hoped the president would explain why sending American troops to Iraq had helped defend our security, but he did not. The questionable line about sending those troops to make Iraq's people free had remained in the speech. And it was rather late to be promising the Iraqis that we would not stay as an occupying power but instead let them find their own way.

The president had chosen to talk almost exclusively about Iraq's future. His political opponents noticed that if they talked about the past – about prewar intelligence and prewar planning for the war and the aftermath – no one in the White House communications effort would contradict them. Opponents could say anything about the prewar period – misstating Saddam's record, the administration's record or their own – and their statements would go uncorrected. This was a big incentive for them to recriminate about the administration's prewar work, and congressional Democrats have pressed for one retrospective investigation after another.

But the most damaging effect of this communications strategy was that it changed the definition of success. Before the war, administration officials said that success would mean an Iraq that no longer threatened important U.S. interests – that did not support terrorism, aspire to WMD, threaten its neighbors, or conduct mass murder. But from the fall of 2003 on, the president defined success as stable democracy in Iraq.

This was a public affairs decision that has had enormous strategic consequences for American support for the war. The new formula fails to connect the Iraq war directly to U.S. interests. It causes many Americans to question why we should be investing so much blood and treasure for Iraqis. And many Americans doubt that the new aim is realistic – that stable democracy can be achieved in Iraq in the foreseeable future.

To fight a long war, the president has to ensure he can preserve public and congressional support for the effort. It is not an overstatement to say that the president's shift in rhetoric nearly cost the U.S. the war. Victory or defeat can hinge on the president's words as much as on the military plans of his generals or the actions of their troops on the ground.