The military’s resistance dates back to the summer of 2013, when a highly classified assessment, put together by the Defense Intelligence Agency (DIA) and the Joint Chiefs of Staff, then led by General Martin Dempsey, forecast that the fall of the Assad regime would lead to chaos and, potentially, to Syria’s takeover by jihadi extremists, much as was then happening in Libya. A former senior adviser to the Joint Chiefs told me that the document was an ‘all-source’ appraisal, drawing on information from signals, satellite and human intelligence, and took a dim view of the Obama administration’s insistence on continuing to finance and arm the so-called moderate rebel groups. By then, the CIA had been conspiring for more than a year with allies in the UK, Saudi Arabia and Qatar to ship guns and goods – to be used for the overthrow of Assad – from Libya, via Turkey, into Syria. The new intelligence estimate singled out Turkey as a major impediment to Obama’s Syria policy. The document showed, the adviser said, ‘that what was started as a covert US programme to arm and support the moderate rebels fighting Assad had been co-opted by Turkey, and had morphed into an across-the-board technical, arms and logistical programme for all of the opposition, including Jabhat al-Nusra and Islamic State. The so-called moderates had evaporated and the Free Syrian Army was a rump group stationed at an airbase in Turkey.’ The assessment was bleak: there was no viable ‘moderate’ opposition to Assad, and the US was arming extremists.
Lieutenant General Michael Flynn, director of the DIA between 2012 and 2014, confirmed that his agency had sent a constant stream of classified warnings to the civilian leadership about the dire consequences of toppling Assad. The jihadists, he said, were in control of the opposition. Turkey wasn’t doing enough to stop the smuggling of foreign fighters and weapons across the border. ‘If the American public saw the intelligence we were producing daily, at the most sensitive level, they would go ballistic,’ Flynn told me. ‘We understood Isis’s long-term strategy and its campaign plans, and we also discussed the fact that Turkey was looking the other way when it came to the growth of the Islamic State inside Syria.’ The DIA’s reporting, he said, ‘got enormous pushback’ from the Obama administration. ‘I felt that they did not want to hear the truth.’
‘Our policy of arming the opposition to Assad was unsuccessful and actually having a negative impact,’ the former JCS adviser said. ‘The Joint Chiefs believed that Assad should not be replaced by fundamentalists. The administration’s policy was contradictory. They wanted Assad to go but the opposition was dominated by extremists. So who was going to replace him? To say Assad’s got to go is fine, but if you follow that through – therefore anyone is better. It’s the “anybody else is better” issue that the JCS had with Obama’s policy.’ The Joint Chiefs felt that a direct challenge to Obama’s policy would have ‘had a zero chance of success’. So in the autumn of 2013 they decided to take steps against the extremists without going through political channels, by providing US intelligence to the militaries of other nations, on the understanding that it would be passed on to the Syrian army and used against the common enemy, Jabhat al-Nusra and Islamic State.
Germany, Israel and Russia were in contact with the Syrian army, and able to exercise some influence over Assad’s decisions – it was through them that US intelligence would be shared. Each had its reasons for co-operating with Assad: Germany feared what might happen among its own population of six million Muslims if Islamic State expanded; Israel was concerned with border security; Russia had an alliance of very long standing with Syria, and was worried by the threat to its only naval base on the Mediterranean, at Tartus. ‘We weren’t intent on deviating from Obama’s stated policies,’ the adviser said. ‘But sharing our assessments via the military-to-military relationships with other countries could prove productive. It was clear that Assad needed better tactical intelligence and operational advice. The JCS concluded that if those needs were met, the overall fight against Islamist terrorism would be enhanced. Obama didn’t know, but Obama doesn’t know what the JCS does in every circumstance and that’s true of all presidents.’
Once the flow of US intelligence began, Germany, Israel and Russia started passing on information about the whereabouts and intent of radical jihadist groups to the Syrian army; in return, Syria provided information about its own capabilities and intentions. There was no direct contact between the US and the Syrian military; instead, the adviser said, ‘we provided the information – including long-range analyses on Syria’s future put together by contractors or one of our war colleges – and these countries could do with it what they chose, including sharing it with Assad. We were saying to the Germans and the others: “Here’s some information that’s pretty interesting and our interest is mutual.” End of conversation. The JCS could conclude that something beneficial would arise from it – but it was a military to military thing, and not some sort of a sinister Joint Chiefs’ plot to go around Obama and support Assad. It was a lot cleverer than that. If Assad remains in power, it will not be because we did it. It’s because he was smart enough to use the intelligence and sound tactical advice we provided to others.’
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The public history of relations between the US and Syria over the past few decades has been one of enmity. Assad condemned the 9/11 attacks, but opposed the Iraq War. George W. Bush repeatedly linked Syria to the three members of his ‘axis of evil’ – Iraq, Iran and North Korea – throughout his presidency. State Department cables made public by WikiLeaks show that the Bush administration tried to destabilise Syria and that these efforts continued into the Obama years. In December 2006, William Roebuck, then in charge of the US embassy in Damascus, filed an analysis of the ‘vulnerabilities’ of the Assad government and listed methods ‘that will improve the likelihood’ of opportunities for destabilisation. He recommended that Washington work with Saudi Arabia and Egypt to increase sectarian tension and focus on publicising ‘Syrian efforts against extremist groups’ – dissident Kurds and radical Sunni factions – ‘in a way that suggests weakness, signs of instability, and uncontrolled blowback’; and that the ‘isolation of Syria’ should be encouraged through US support of the National Salvation Front, led by Abdul Halim Khaddam, a former Syrian vice president whose government-in-exile in Riyadh was sponsored by the Saudis and the Muslim Brotherhood. Another 2006 cable showed that the embassy had spent $5 million financing dissidents who ran as independent candidates for the People’s Assembly; the payments were kept up even after it became clear that Syrian intelligence knew what was going on. A 2010 cable warned that funding for a London-based television network run by a Syrian opposition group would be viewed by the Syrian government ‘as a covert and hostile gesture toward the regime’.
But there is also a parallel history of shadowy co-operation between Syria and the US during the same period. The two countries collaborated against al-Qaida, their common enemy. A longtime consultant to the Joint Special Operations Command said that, after 9/11, ‘Bashar was, for years, extremely helpful to us while, in my view, we were churlish in return, and clumsy in our use of the gold he gave us. That quiet co-operation continued among some elements, even after the [Bush administration’s] decision to vilify him.’ In 2002 Assad authorised Syrian intelligence to turn over hundreds of internal files on the activities of the Muslim Brotherhood in Syria and Germany. Later that year, Syrian intelligence foiled an attack by al-Qaida on the headquarters of the US Navy’s Fifth Fleet in Bahrain, and Assad agreed to provide the CIA with the name of a vital al-Qaida informant. In violation of this agreement, the CIA contacted the informant directly; he rejected the approach, and broke off relations with his Syrian handlers. Assad also secretly turned over to the US relatives of Saddam Hussein who had sought refuge in Syria, and – like America’s allies in Jordan, Egypt, Thailand and elsewhere – tortured suspected terrorists for the CIA in a Damascus prison.
It was this history of co-operation that made it seem possible in 2013 that Damascus would agree to the new indirect intelligence-sharing arrangement with the US. The Joint Chiefs let it be known that in return the US would require four things: Assad must restrain Hizbullah from attacking Israel; he must renew the stalled negotiations with Israel to reach a settlement on the Golan Heights; he must agree to accept Russian and other outside military advisers; and he must commit to holding open elections after the war with a wide range of factions included. ‘We had positive feedback from the Israelis, who were willing to entertain the idea, but they needed to know what the reaction would be from Iran and Syria,’ the JCS adviser told me. ‘The Syrians told us that Assad would not make a decision unilaterally – he needed to have support from his military and Alawite allies. Assad’s worry was that Israel would say yes and then not uphold its end of the bargain.’ A senior adviser to the Kremlin on Middle East affairs told me that in late 2012, after suffering a series of battlefield setbacks and military defections, Assad had approached Israel via a contact in Moscow and offered to reopen the talks on the Golan Heights. The Israelis had rejected the offer. ‘They said, “Assad is finished,”’ the Russian official told me. ‘“He’s close to the end.”’ He said the Turks had told Moscow the same thing. By mid-2013, however, the Syrians believed the worst was behind them, and wanted assurances that the Americans and others were serious about their offers of help.
In the early stages of the talks, the adviser said, the Joint Chiefs tried to establish what Assad needed as a sign of their good intentions. The answer was sent through one of Assad’s friends: ‘Bring him the head of Prince Bandar.’ The Joint Chiefs did not oblige. Bandar bin Sultan had served Saudi Arabia for decades in intelligence and national security affairs, and spent more than twenty years as ambassador in Washington. In recent years, he has been known as an advocate for Assad’s removal from office by any means. Reportedly in poor health, he resigned last year as director of the Saudi National Security Council, but Saudi Arabia continues to be a major provider of funds to the Syrian opposition, estimated by US intelligence last year at $700 million.
In July 2013, the Joint Chiefs found a more direct way of demonstrating to Assad how serious they were about helping him. By then the CIA-sponsored secret flow of arms from Libya to the Syrian opposition, via Turkey, had been underway for more than a year (it started sometime after Gaddafi’s death on 20 October 2011).
＊ The operation was largely run out of a covert CIA annex in Benghazi, with State Department acquiescence. On 11 September 2012 the US ambassador to Libya, Christopher Stevens, was killed during an anti-American demonstration that led to the burning down of the US consulate in Benghazi; reporters for the
Washington Postfound copies of the ambassador’s schedule in the building’s ruins. It showed that on 10 September Stevens had met with the chief of the CIA’s annex operation. The next day, shortly before he died, he met a representative from Al-Marfa Shipping and Maritime Services, a Tripoli-based company which, the JCS adviser said, was known by the Joint Staff to be handling the weapons shipments.
By the late summer of 2013, the DIA’s assessment had been circulated widely, but although many in the American intelligence community were aware that the Syrian opposition was dominated by extremists the CIA-sponsored weapons kept coming, presenting a continuing problem for Assad’s army. Gaddafi’s stockpile had created an international arms bazaar, though prices were high. ‘There was no way to stop the arms shipments that had been authorised by the president,’ the JCS adviser said. ‘The solution involved an appeal to the pocketbook. The CIA was approached by a representative from the Joint Chiefs with a suggestion: there were far less costly weapons available in Turkish arsenals that could reach the Syrian rebels within days, and without a boat ride.’ But it wasn’t only the CIA that benefited. ‘We worked with Turks we trusted who were not loyal to Erdoğan,’ the adviser said, ‘and got them to ship the jihadists in Syria all the obsolete weapons in the arsenal, including M1 carbines that hadn’t been seen since the Korean War and lots of Soviet arms. It was a message Assad could understand: “We have the power to diminish a presidential policy in its tracks.”’
The flow of US intelligence to the Syrian army, and the downgrading of the quality of the arms being supplied to the rebels, came at a critical juncture. The Syrian army had suffered heavy losses in the spring of 2013 in fighting against Jabhat al-Nusra and other extremist groups as it failed to hold the provincial capital of Raqqa. Sporadic Syrian army and air-force raids continued in the area for months, with little success, until it was decided to withdraw from Raqqa and other hard to defend, lightly populated areas in the north and west and focus instead on consolidating the government’s hold on Damascus and the heavily populated areas linking the capital to Latakia in the north-east. But as the army gained in strength with the Joint Chiefs’ support, Saudi Arabia, Qatar and Turkey escalated their financing and arming of Jabhat al-Nusra and Islamic State, which by the end of 2013 had made enormous gains on both sides of the Syria/Iraq border. The remaining non-fundamentalist rebels found themselves fighting – and losing – pitched battles against the extremists. In January 2014, IS took complete control of Raqqa and the tribal areas around it from al-Nusra and established the city as its base. Assad still controlled 80 per cent of the Syrian population, but he had lost a vast amount of territory.
CIA efforts to train the moderate rebel forces were also failing badly. ‘The CIA’s training camp was in Jordan and was controlled by a Syrian tribal group,’ the JCS adviser said. There was a suspicion that some of those who signed up for training were actually Syrian army regulars minus their uniforms. This had happened before, at the height of the Iraqi war, when hundreds of Shia militia members showed up at American training camps for new uniforms, weapons and a few days of training, and then disappeared into the desert. A separate training programme, set up by the Pentagon in Turkey, fared no better. The Pentagon acknowledged in September that only ‘four or five’ of its recruits were still battling Islamic State; a few days later 70 of them defected to Jabhat al-Nusra immediately after crossing the border into Syria.
In January 2014, despairing at the lack of progress, John Brennan, the director of the CIA, summoned American and Sunni Arab intelligence chiefs from throughout the Middle East to a secret meeting in Washington, with the aim of persuading Saudi Arabia to stop supporting extremist fighters in Syria. ‘The Saudis told us they were happy to listen,’ the JCS adviser said, ‘so everyone sat around in Washington to hear Brennan tell them that they had to get on board with the so-called moderates. His message was that if everyone in the region stopped supporting al-Nusra and Isis their ammunition and weapons would dry up, and the moderates would win out.’ Brennan’s message was ignored by the Saudis, the adviser said, who ‘went back home and increased their efforts with the extremists and asked us for more technical support. And we say OK, and so it turns out that we end up reinforcing the extremists.’
But the Saudis were far from the only problem: American intelligence had accumulated intercept and human intelligence demonstrating that the Erdoğan government had been supporting Jabhat al-Nusra for years, and was now doing the same for Islamic State. ‘We can handle the Saudis,’ the adviser said. ‘We can handle the Muslim Brotherhood. You can argue that the whole balance in the Middle East is based on a form of mutually assured destruction between Israel and the rest of the Middle East, and Turkey can disrupt the balance – which is Erdoğan’s dream. We told him we wanted him to shut down the pipeline of foreign jihadists flowing into Turkey. But he is dreaming big – of restoring the Ottoman Empire – and he did not realise the extent to which he could be successful in this.’
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One of the constants in US affairs since the fall of the Soviet Union has been a military-to-military relationship with Russia. After 1991 the US spent billions of dollars to help Russia secure its nuclear weapons complex, including a highly secret joint operation to remove weapons-grade uranium from unsecured storage depots in Kazakhstan. Joint programmes to monitor the security of weapons-grade materials continued for the next two decades. During the American war on Afghanistan, Russia provided overflight rights for US cargo carriers and tankers, as well as access for the flow of weapons, ammunition, food and water the US war machine needed daily. Russia’s military provided intelligence on Osama bin Laden’s whereabouts and helped the US negotiate rights to use an airbase in Kyrgyzstan. The Joint Chiefs have been in communication with their Russian counterparts throughout the Syrian war, and the ties between the two militaries start at the top. In August, a few weeks before his retirement as chairman of the Joint Chiefs, Dempsey made a farewell visit to the headquarters of the Irish Defence Forces in Dublin and told his audience there that he had made a point while in office to keep in touch with the chief of the Russian General Staff, General Valery Gerasimov. ‘I’ve actually suggested to him that we not end our careers as we began them,’ Dempsey said – one a tank commander in West Germany, the other in the east.
When it comes to tackling Islamic State, Russia and the US have much to offer each other. Many in the IS leadership and rank and file fought for more than a decade against Russia in the two Chechen wars that began in 1994, and the Putin government is heavily invested in combating Islamist terrorism. ‘Russia knows the Isis leadership,’ the JCS adviser said, ‘and has insights into its operational techniques, and has much intelligence to share.’ In return, he said, ‘we’ve got excellent trainers with years of experience in training foreign fighters – experience that Russia does not have.’ The adviser would not discuss what American intelligence is also believed to have: an ability to obtain targeting data, often by paying huge sums of cash, from sources within rebel militias.
A former White House adviser on Russian affairs told me that before 9/11 Putin ‘used to say to us: “We have the same nightmares about different places.” He was referring to his problems with the caliphate in Chechnya and our early issues with al-Qaida. These days, after the Metrojet bombing over Sinai and the massacres in Paris and elsewhere, it’s hard to avoid the conclusion that we actually have the same nightmares about the same places.’
Yet the Obama administration continues to condemn Russia for its support of Assad. A retired senior diplomat who served at the US embassy in Moscow expressed sympathy for Obama’s dilemma as the leader of the Western coalition opposed to Russia’s aggression against Ukraine: ‘Ukraine is a serious issue and Obama has been handling it firmly with sanctions. But our policy vis-à-vis Russia is too often unfocused. But it’s not about us in Syria. It’s about making sure Bashar does not lose. The reality is that Putin does not want to see the chaos in Syria spread to Jordan or Lebanon, as it has to Iraq, and he does not want to see Syria end up in the hands of Isis. The most counterproductive thing Obama has done, and it has hurt our efforts to end the fighting a lot, was to say: “Assad must go as a premise for negotiation.”’ He also echoed a view held by some in the Pentagon when he alluded to a collateral factor behind Russia’s decision to launch airstrikes in support of the Syrian army on 30 September: Putin’s desire to prevent Assad from suffering the same fate as Gaddafi. He had been told that Putin had watched a video of Gaddafi’s savage death three times, a video that shows him being sodomised with a bayonet. The JCS adviser also told me of a US intelligence assessment which concluded that Putin had been appalled by Gaddafi’s fate: ‘Putin blamed himself for letting Gaddafi go, for not playing a strong role behind the scenes’ at the UN when the Western coalition was lobbying to be allowed to undertake the airstrikes that destroyed the regime. ‘Putin believed that unless he got engaged Bashar would suffer the same fate – mutilated – and he’d see the destruction of his allies in Syria.’
