U.S. and Pakistan: Afghan Strategies

U.S. Army Sgt. Robert Newman, Bravo Company, 1st Battalion,
4th Infantry Regiment, U.S. Army Europe, watches the sunrise after a dismounted patrol mission
near Forward Operating Base Baylough, Zabul, Afghanistan, March 19, 2009.
(U.S. Army photo by Staff Sgt. Adam Mancini/Released)

By George Friedman

U.S. President Barack Obama will give a speech on Afghanistan on June 22. Whatever he says, it is becoming apparent that the United States is exploring ways to accelerate the drawdown of its forces in the country. It is also clear that U.S. relations with Pakistan are deteriorating to a point where cooperation — whatever level there was — is breaking down. These are two intimately related issues. Any withdrawal from Afghanistan, particularly an accelerated one, will leave a power vacuum in Afghanistan that the Kabul government will not be able to fill. Afghanistan is Pakistan’s back door, and its evolution is a matter of fundamental interest to Pakistan. A U.S. withdrawal means an Afghanistan intertwined with and influenced by Pakistan. Therefore, the current dynamic with Pakistan challenges any withdrawal plan.

There may be some in the U.S. military who believe that the United States might prevail in Afghanistan, but they are few in number. The champion of this view, Gen. David Petraeus, has been relieved of his command of forces in Afghanistan and promoted (or kicked upstairs) to become director of the CIA. The conventional definition of victory has been the creation of a strong government in Kabul controlling an army and police force able to protect the regime and ultimately impose its will throughout Afghanistan. With President Hamid Karzai increasingly uncooperative with the United States, the likelihood of this outcome is evaporating. Karzai realizes his American protection will be withdrawn and understands that the Americans will blame him for any negative outcomes of the withdrawal because of his inability or unwillingness to control corruption.

Defining Success in Afghanistan

There is a prior definition of success that shaped the Bush administration’s approach to Afghanistan in its early phases. The goal here was the disruption of al Qaeda’s operations in Afghanistan and the prevention of further attacks on the United States from Afghanistan. This definition did not envisage the emergence of a stable and democratic Afghanistan free of corruption and able to control its territory. It was more modest and, in many ways, it was achieved in 2001-2002. Its defect, of course, was that the disruption of al Qaeda in Afghanistan, while useful, did not address the evolution of al Qaeda in other countries. In particular, it did not deal with the movement of al Qaeda operatives to Pakistan, nor did it address the Taliban, which were not defeated in 2001-2002 but simply declined combat on American terms, re-emerging as a viable insurgency when the United States became bogged down in Iraq.

The mission creep from denying Afghan bases to al Qaeda to the transformation of Afghan society had many roots and was well under way during the Bush administration, but the immediate origin of the current strategy was the attempt to transfer the lessons of Iraq to Afghanistan. The surge in Iraq, and the important political settlement with Sunni insurgents that brought them into the American fold, reduced the insurgency. It remains to be seen whether it will produce a stable Iraq not hostile to American interests. The ultimate Iraq strategy was a political settlement framed by an increase in forces, and its long-term success was never clear. The Obama administration was prepared to repeat the attempt in Afghanistan, at least by using Iraq as a template if not applying exactly the same tactics.

However, the United States found that the Taliban were less inclined to negotiate with the United States, and certainly not on the favorable terms of the Iraqi insurgents, simply because they believed they would win in the long run and did not face the dangers that the Sunni insurgents did. The military operations that framed the search for a political solution turned out to be a frame without a painting. In Iraq, it is not clear that the Petraeus strategy actually achieved a satisfactory political outcome, and its application to Afghanistan does not seem, as yet, to have drawn the Taliban into the political process in the way that incorporating the Sunnis made Iraq appear at least minimally successful.

As we pointed out after the death of Osama bin Laden, his demise, coupled with the transfer of Petraeus out of Afghanistan, offered two opportunities. The first was a return to the prior definition of success in Afghanistan, in which the goal was the disruption of al Qaeda. Second, the departure of Petraeus and his staff also removed the ideology of counterinsurgency, in which social transformation was seen as the means toward a practical and radical transformation of Afghanistan. These two events opened the door to the redefinition of the U.S. goal and the ability to claim mission accomplished for the earlier, more modest end, thereby building the basis for terminating the war.

The central battle was in the United States military, divided between conventional warfighters and counter-insurgents. Counterinsurgency draws its roots from theories of social development in emerging countries going back to the 1950s. It argues that victory in these sorts of wars depends on social and political mobilization and that the purpose of the military battle is to create a space to build a state and nation capable of defending itself.

The conventional understanding of war is that its purpose is to defeat the enemy military. It presents a more limited and focused view of military power. This faction, bitterly opposed to Petraeus’ view of what was happening in Afghanistan, saw the war in terms of defeating the Taliban as a military force. In the view of this faction, defeating the Taliban was impossible with the force available and unlikely even with a more substantial force. There were two reasons for this. First, the Taliban comprised a light infantry force with a superior intelligence capability and the ability to withdraw from untenable operations (such as the battle for Helmand province) and re-engage on more favorable terms elsewhere. Second, sanctuaries in Pakistan allowed the Taliban to withdraw to safety and reconstitute themselves, thereby making their defeat in detail impossible. The option of invading Pakistan remained, but the idea of invading a country of 180 million people with some fraction of the nearly 150,000 U.S. and allied troops in Afghanistan was militarily unsupportable. Indeed, no force the United States could field would be in a position to compel Pakistan to conform to American wishes.

The alternative on the American side is a more conventional definition of war in which the primary purpose of the U.S. military in Afghanistan is to create a framework for special operations forces to disrupt al Qaeda in Afghanistan and potentially Pakistan, not to attempt to either defeat the Taliban strategically or transform Afghanistan politically and culturally. With the death of bin Laden, an argument can be made — at least for political purposes — that al Qaeda has been disrupted enough that the conventional military framework in Afghanistan is no longer needed. If al Qaeda revives in Afghanistan, then covert operations can be considered. The problem with al Qaeda is that it does not require any single country to regenerate. It is a global guerrilla force.

Asymmetry in U.S. and Pakistani Interests

The United States can choose to leave Afghanistan without suffering strategic disaster. Pakistan cannot leave Pakistan. It therefore cannot leave its border with Afghanistan nor can it evade the reality that Pakistani ethnic groups — particularly the Pashtun, which straddle the border and form the heart of the Taliban phenomenon — live on the Afghan side of the border as well. Therefore, while Afghanistan is a piece of American global strategy and not its whole, Afghanistan is central to Pakistan’s national strategy. This asymmetry in U.S. and Pakistani interests is now the central issue.

When the Soviets invaded Afghanistan, Pakistan joined with the United States to defeat the Soviets. Saudi Arabia provided money and recruits, the Pakistanis provided training facilities and intelligence and the United States provided trainers and other support. For Pakistan, the Soviet invasion was a matter of fundamental national interest. Facing a hostile India supported by the Soviets and a Soviet presence in Afghanistan, Pakistan was threatened on two fronts. Therefore, deep involvement with the jihadists in Afghanistan was essential to Pakistan because the jihadists tied down the Soviets. This was also beneficial to the United States.

After the Soviet withdrawal from Afghanistan, the United States became indifferent to Afghanistan’s future. Pakistan could not be indifferent. It remained deeply involved with the Islamist forces that had defeated the Soviets and would govern Afghanistan, and it helped facilitate the emergence of the Taliban as the dominant force in the country. The United States was quite content with this in the 1990s and accepted the fact that Pakistani intelligence had become intertwined not only with the forces that fought the Soviets but also with the Taliban, who, with Pakistani support, won the civil war that followed the Soviet defeat.

Intelligence organizations are as influenced by their clients as their clients are controlled by them. Consider anti-Castro Cubans in the 1960s and 1970s and their beginning as CIA assets and their end as major influencers of U.S. policy toward Cuba. The Pakistani Inter-Services Intelligence directorate (ISI) became entwined with its clients. As the influence of the Taliban and Islamist elements increased in Afghanistan, the sentiment spread to Pakistan, where a massive Islamist movement developed with influence in the government and intelligence services.

Sept. 11, 2001, posed a profound threat to Pakistan. On one side, Pakistan faced a United States in a state of crisis, demanding Pakistani support against both al Qaeda and the Taliban. On the other side Pakistan had a massive Islamist movement hostile to the United States and intelligence services that had, for a generation, been intimately linked to Afghan Islamists, first with whole-hearted U.S. support, then with its benign indifference. The American demands involved shredding close relationships in Afghanistan, supporting an American occupation in Afghanistan and therefore facing internal resistance and threats in both Afghanistan and Pakistan.

The Pakistani solution was the only one it could come up with to placate both the United States and the forces in Pakistan that did not want to cooperate with the United States. The Pakistanis lied. To be more precise and fair, they did as much as they could for the United States without completely destabilizing Pakistan while making it appear that they were being far more cooperative with the Americans and far less cooperative with their public. As in any such strategy, the ISI and Islamabad found themselves engaged in a massive balancing act.

U.S. and Pakistani national interests widely diverged. The United States wanted to disrupt al Qaeda regardless of the cost. The Pakistanis wanted to avoid the collapse of their regime at any cost. These were not compatible goals. At the same time, the United States and Pakistan needed each other. The United States could not possibly operate in Afghanistan without some Pakistani support, ranging from the use of Karachi and the Karachi-Khyber and Karachi-Chaman lines of supply to at least some collaboration on intelligence sharing, at least on al Qaeda. The Pakistanis badly needed American support against India. If the United States simply became pro-Indian, the Pakistani position would be in severe jeopardy.

The United States was always aware of the limits of Pakistani assistance. The United States accepted this publicly because it made Pakistan appear to be an ally at a time when the United States was under attack for unilateralism. It accepted it privately as well because it did not want to see Pakistan destabilize. The Pakistanis were aware of the limits of American tolerance, so a game was played out.

The Endgame in Afghanistan

That game is now breaking down, not because the United States raided Pakistan and killed bin Laden but because it is becoming apparent to Pakistan that the United States will, sooner or later, be dramatically drawing down its forces in Afghanistan. This drawdown creates three facts. First, Pakistan will be facing the future on its western border with Afghanistan without an American force to support it. Pakistan does not want to alienate the Taliban, and not just for ideological reasons. It also expects the Taliban to govern Afghanistan in due course. India aside, Pakistan needs to maintain its ties to the Taliban in order to maintain its influence in Afghanistan and guard its western flank. Being cooperative with the United States is less important. Second, Pakistan is aware that as the United States draws down, it will need Pakistan to cover its withdrawal strategically. Afghanistan is not Iraq, and as the U.S. force draws down, it will be in greater danger. The U.S. needs Pakistani influence. Finally, there will be a negotiation with the Taliban, and elements of Pakistan, particularly the ISI, will be the intermediary.

The Pakistanis are preparing for the American drawdown. Publicly, it is important for them to appear as independent and even hostile to the Americans as possible in order to maintain their domestic credibility. Up to now, they have appeared to various factions in Pakistan as American lackeys. If the United States is leaving, the Pakistanis can’t afford to appear that way anymore. There are genuine issues separating the two countries, but in the end, the show is as important as the issues. U.S. accusations that the government has not cooperated with the United States in fighting Islamists are exactly what the Pakistani establishment needs in order to move to the next phase. Publicly arresting CIA sources who aided the United States in capturing bin Laden also enhances this new image.

From the American point of view, the war in Afghanistan — and elsewhere — has not been a failure. There have been no more attacks on the United States on the order of 9/11, and that has not been for al Qaeda’s lack of trying. U.S. intelligence and security services, fumbling in the early days, achieved a remarkable success, and that was aided by the massive disruption of al Qaeda by U.S. military operations. The measure of military success is simple. If the enemy was unable to strike, the military effort was a success. Obviously, there is no guarantee that al Qaeda will not regenerate or that another group will not emerge, but a continued presence in Afghanistan at this point doesn’t affect that. This is particularly true as franchise operations like the Yemen-based al Qaeda in the Arabian Peninsula begin to overtake the old apex leadership in terms of both operational innovation in transnational efforts and the ideological underpinnings of those attacks.

In the end, the United States will leave Afghanistan (with the possible exception of some residual special operations forces). Pakistan will draw Afghanistan back into its sphere of influence. Pakistan will need American support against India (since China does not have the force needed to support Pakistan over the Himalayas nor the navy to protect Pakistan’s coast). The United States will need Pakistan to do the basic work of preventing an intercontinental al Qaeda from forming again. Reflecting on the past 10 years, Pakistan will see that as being in its national interest. The United States will use Pakistan to balance India while retaining close ties to India.

A play will be acted out like the New Zealand Haka, with both sides making terrible sounds and frightening gestures at each other. But now that the counter-insurgency concept is being discarded, from all indications, and a fresh military analysis is under way, the script is being rewritten and we can begin to see the end shaping up. The United States is furious at Pakistan for its willingness to protect American enemies. Pakistan is furious at the United States for conducting attacks on its sovereign territory. In the end it doesn’t matter. They need each other. In the affairs of nations, like and dislike are not meaningful categories, and bullying and treachery are not blocks to cooperation. The two countries need each other more than they need to punish each other. Great friendships among nations are built on less.

Read more: U.S. and Pakistan: Afghan Strategies | STRATFOR

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What Was Mumbai About?

A policeman walks with an elderly man after shootings by unidentified assailants
at a railway station in Mumbai November 26, 2008. Photo: Reuters/India

The United States might well want to limit New Delhi’s response [to the Mumbai attack]. U.S. Secretary of State Condoleezza Rice is on her way to India to discuss just this... It is possible that New Delhi will make a radical proposal to Rice, however. Given that the Pakistani government is incapable of exercising control in its own country, and given that Pakistan now represents a threat to both U.S. and Indian national security, the Indians might suggest a joint operation with the Americans against Pakistan.

Strategic Motivations for the Mumbai Attack
By George Friedman

Last Wednesday evening, a group of Islamist operatives carried out a complex terror operation in the Indian city of Mumbai. The attack was not complex because of the weapons used or its size, but in the apparent training, multiple methods of approaching the city and excellent operational security and discipline in the final phases of the operation, when the last remaining attackers held out in the Taj Mahal hotel for several days. The operational goal of the attack clearly was to cause as many casualties as possible, particularly among Jews and well-to-do guests of five-star hotels. But attacks on various other targets, from railroad stations to hospitals, indicate that the more general purpose was to spread terror in a major Indian city.

While it is not clear precisely who carried out the Mumbai attack, two separate units apparently were involved. One group, possibly consisting of Indian Muslims, was established in Mumbai ahead of the attacks. The second group appears to have just arrived. It traveled via ship from Karachi, Pakistan, later hijacked a small Indian vessel to get past Indian coastal patrols, and ultimately landed near Mumbai.

Extensive preparations apparently had been made, including surveillance of the targets. So while the precise number of attackers remains unclear, the attack clearly was well-planned and well-executed.

Evidence and logic suggest that radical Pakistani Islamists carried out the attack. These groups have a highly complex and deliberately amorphous structure. Rather than being centrally controlled, ad hoc teams are created with links to one or more groups. Conceivably, they might have lacked links to any group, but this is hard to believe. Too much planning and training were involved in this attack for it to have been conceived by a bunch of guys in a garage. While precisely which radical Pakistani Islamist group or groups were involved is unknown, the Mumbai attack appears to have originated in Pakistan. It could have been linked to al Qaeda prime or its various franchises and/or to Kashmiri insurgents.

More important than the question of the exact group that carried out the attack, however, is the attackers’ strategic end. There is a tendency to regard terror attacks as ends in themselves, carried out simply for the sake of spreading terror. In the highly politicized atmosphere of Pakistan’s radical Islamist factions, however, terror frequently has a more sophisticated and strategic purpose. Whoever invested the time and took the risk in organizing this attack had a reason to do so. Let’s work backward to that reason by examining the logical outcomes following this attack.

An End to New Delhi’s Restraint

The most striking aspect of the Mumbai attack is the challenge it presents to the Indian government — a challenge almost impossible for New Delhi to ignore. A December 2001 Islamist attack on the Indian parliament triggered an intense confrontation between India and Pakistan. Since then, New Delhi has not responded in a dramatic fashion to numerous Islamist attacks against India that were traceable to Pakistan. The Mumbai attack, by contrast, aimed to force a response from New Delhi by being so grievous that any Indian government showing only a muted reaction to it would fall.

India’s restrained response to Islamist attacks (even those originating in Pakistan) in recent years has come about because New Delhi has understood that, for a host of reasons, Islamabad has been unable to control radical Pakistani Islamist groups. India did not want war with Pakistan; it felt it had more important issues to deal with. New Delhi therefore accepted Islamabad’s assurances that Pakistan would do its best to curb terror attacks, and after suitable posturing, allowed tensions originating from Islamist attacks to pass.

This time, however, the attackers struck in such a way that New Delhi couldn’t allow the incident to pass. As one might expect, public opinion in India is shifting from stunned to furious. India’s Congress party-led government is politically weak and nearing the end of its life span. It lacks the political power to ignore the attack, even if it were inclined to do so. If it ignored the attack, it would fall, and a more intensely nationalist government would take its place. It is therefore very difficult to imagine circumstances under which the Indians could respond to this attack in the same manner they have to recent Islamist attacks.

What the Indians actually will do is not clear. In 2001-2002, New Delhi responded to the attack on the Indian parliament by moving forces close to the Pakistani border and the Line of Control that separates Indian- and Pakistani-controlled Kashmir, engaging in artillery duels along the front, and bringing its nuclear forces to a high level of alert. The Pakistanis made a similar response. Whether India ever actually intended to attack Pakistan remains unclear, but either way, New Delhi created an intense crisis in Pakistan.

The U.S. and the Indo-Pakistani Crisis

The United States used this crisis for its own ends. Having just completed the first phase of its campaign in Afghanistan, Washington was intensely pressuring Pakistan’s then-Musharraf government to expand cooperation with the United States; purge its intelligence organization, the Inter-Services Intelligence (ISI), of radical Islamists; and crack down on al Qaeda and the Taliban in the Afghan-Pakistani border region. Former Pakistani President Pervez Musharraf had been reluctant to cooperate with Washington, as doing so inevitably would spark a massive domestic backlash against his government.

The crisis with India produced an opening for the United States. Eager to get India to stand down from the crisis, the Pakistanis looked to the Americans to mediate. And the price for U.S. mediation was increased cooperation from Pakistan with the United States. The Indians, not eager for war, backed down from the crisis after guarantees that Islamabad would impose stronger controls on Islamist groups in Kashmir.

In 2001-2002, the Indo-Pakistani crisis played into American hands. In 2008, the new Indo-Pakistani crisis might play differently. The United States recently has demanded increased Pakistani cooperation along the Afghan border. Meanwhile, President-elect Barack Obama has stated his intention to focus on Afghanistan and pressure the Pakistanis.

Therefore, one of Islamabad’s first responses to the new Indo-Pakistani crisis was to announce that if the Indians increased their forces along Pakistan’s eastern border, Pakistan would be forced to withdraw 100,000 troops from its western border with Afghanistan. In other words, threats from India would cause Pakistan to dramatically reduce its cooperation with the United States in the Afghan war. The Indian foreign minister is flying to the United States to meet with Obama; obviously, this matter will be discussed among others.

We expect the United States to pressure India not to create a crisis, in order to avoid this outcome. As we have said, the problem is that it is unclear whether politically the Indians can afford restraint. At the very least, New Delhi must demand that the Pakistani government take steps to make the ISI and Pakistan’s other internal security apparatus more effective. Even if the Indians concede that there was no ISI involvement in the attack, they will argue that the ISI is incapable of stopping such attacks. They will demand a purge and reform of the ISI as a sign of Pakistani commitment. Barring that, New Delhi will move troops to the Indo-Pakistani frontier to intimidate Pakistan and placate Indian public opinion.

Dilemmas for Islamabad, New Delhi and Washington

At that point, Islamabad will have a serious problem. The Pakistani government is even weaker than the Indian government. Pakistan’s civilian regime does not control the Pakistani military, and therefore does not control the ISI. The civilians can’t decide to transform Pakistani security, and the military is not inclined to make this transformation. (Pakistan’s military has had ample opportunity to do so if it wished.)

Pakistan faces the challenge, just one among many, that its civilian and even military leadership lack the ability to reach deep into the ISI and security services to transform them. In some ways, these agencies operate under their own rules. Add to this the reality that the ISI and security forces — even if they are acting more assertively, as Islamabad claims — are demonstrably incapable of controlling radical Islamists in Pakistan. If they were capable, the attack on Mumbai would have been thwarted in Pakistan. The simple reality is that in Pakistan’s case, the will to make this transformation does not seem to be present, and even if it were, the ability to suppress terror attacks isn’t there.

The United States might well want to limit New Delhi’s response. U.S. Secretary of State Condoleezza Rice is on her way to India to discuss just this. But the politics of India’s situation make it unlikely that the Indians can do anything more than listen. It is more than simply a political issue for New Delhi; the Indians have no reason to believe that the Mumbai operation was one of a kind. Further operations like the Mumbai attack might well be planned. Unless the Pakistanis shift their posture inside Pakistan, India has no way of knowing whether other such attacks can be stymied. The Indians will be sympathetic to Washington’s plight in Afghanistan and the need to keep Pakistani troops at the Afghan border. But New Delhi will need something that the Americans — and in fact the Pakistanis — can’t deliver: a guarantee that there will be no more attacks like this one.

The Indian government cannot chance inaction. It probably would fall if it did. Moreover, in the event of inactivity and another attack, Indian public opinion probably will swing to an uncontrollable extreme. If an attack takes place but India has moved toward crisis posture with Pakistan, at least no one can argue that the Indian government remained passive in the face of threats to national security. Therefore, India is likely to refuse American requests for restraint.

It is possible that New Delhi will make a radical proposal to Rice, however. Given that the Pakistani government is incapable of exercising control in its own country, and given that Pakistan now represents a threat to both U.S. and Indian national security, the Indians might suggest a joint operation with the Americans against Pakistan.

What that joint operation might entail is uncertain, but regardless, this is something that Rice would reject out of hand and that Obama would reject in January 2009. Pakistan has a huge population and nuclear weapons, and the last thing Bush or Obama wants is to practice nation-building in Pakistan. The Indians, of course, will anticipate this response. The truth is that New Delhi itself does not want to engage deep in Pakistan to strike at militant training camps and other Islamist sites. That would be a nightmare. But if Rice shows up with a request for Indian restraint and no concrete proposal — or willingness to entertain a proposal — for solving the Pakistani problem, India will be able to refuse on the grounds that the Americans are asking India to absorb a risk (more Mumbai-style attacks) without the United States’ willingness to share in the risk.

Setting the Stage for a New Indo-Pakistani Confrontation

That will set the stage for another Indo-Pakistani confrontation. India will push forces forward all along the Indo-Pakistani frontier, move its nuclear forces to an alert level, begin shelling Pakistan, and perhaps — given the seriousness of the situation — attack short distances into Pakistan and even carry out airstrikes deep in Pakistan. India will demand greater transparency for New Delhi in Pakistani intelligence operations. The Indians will not want to occupy Pakistan; they will want to occupy Pakistan’s security apparatus.

Naturally, the Pakistanis will refuse that. There is no way they can give India, their main adversary, insight into Pakistani intelligence operations. But without that access, India has no reason to trust Pakistan. This will leave the Indians in an odd position: They will be in a near-war posture, but will have made no demands of Pakistan that Islamabad can reasonably deliver and that would benefit India. In one sense, India will be gesturing. In another sense, India will be trapped by making a gesture on which Pakistan cannot deliver. The situation thus could get out of hand.

In the meantime, the Pakistanis certainly will withdraw forces from western Pakistan and deploy them in eastern Pakistan. That will mean that one leg of the Petraeus and Obama plans would collapse. Washington’s expectation of greater Pakistani cooperation along the Afghan border will disappear along with the troops. This will free the Taliban from whatever limits the Pakistani army had placed on it. The Taliban’s ability to fight would increase, while the motivation for any of the Taliban to enter talks — as Afghan President Hamid Karzai has suggested — would decline. U.S. forces, already stretched to the limit, would face an increasingly difficult situation, while pressure on al Qaeda in the tribal areas would decrease.

Now, step back and consider the situation the Mumbai attackers have created. First, the Indian government faces an internal political crisis driving it toward a confrontation it didn’t plan on. Second, the minimum Pakistani response to a renewed Indo-Pakistani crisis will be withdrawing forces from western Pakistan, thereby strengthening the Taliban and securing al Qaeda. Third, sufficient pressure on Pakistan’s civilian government could cause it to collapse, opening the door to a military-Islamist government — or it could see Pakistan collapse into chaos, giving Islamists security in various regions and an opportunity to reshape Pakistan. Finally, the United States’ situation in Afghanistan has now become enormously more complex.

By staging an attack the Indian government can’t ignore, the Mumbai attackers have set in motion an existential crisis for Pakistan. The reality of Pakistan cannot be transformed, trapped as the country is between the United States and India. Almost every evolution from this point forward benefits Islamists. Strategically, the attack on Mumbai was a precise blow struck to achieve uncertain but favorable political outcomes for the Islamists.

Rice’s trip to India now becomes the crucial next step. She wants Indian restraint. She does not want the western Pakistani border to collapse. But she cannot guarantee what India must have: assurance of no further terror attacks on India originating in Pakistan. Without that, India must do something. No Indian government could survive without some kind of action. So it is up to Rice, in one of her last acts as secretary of state, to come up with a miraculous solution to head off a final, catastrophic crisis for the Bush administration — and a defining first crisis for the new Obama administration. Former U.S. Defense Secretary Donald Rumsfeld once said that the enemy gets a vote. The Islamists cast their ballot in Mumbai.

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