biggest challenge proved to be enforcing the UN-imposed post-Gulf War sanctions on Saddam’s regime. In his view, Saddam could be contained and marginalized; making him
Not long after he became CINC, he proposed a six-point strategic program to William Cohen, President Clinton’s Secretary of Defense, aimed at this more balanced approach. After a polite hearing with Cohen and a session with the Senate Majority and Minority Leaders and the Speaker of the House, Zinni was told to stay out of policy and to stick to execution. “Yes, sir,” he said — always a good Marine.
Meanwhile, the magnitude of the Iraq problem was once again brought home only five days after he took command, at an extended meeting at CENTCOM headquarters with Ambassador Richard Butler, the new head of UNSCOM. CENTCOM provided support for UNSCOM with UN-SUPERVISED U-2 flights over Iraq.
Zinni was already familiar with these missions. Before his appointment as commander, he had, as General Peay’s deputy, coordinated the CENTCOM support missions with Butler’s predecessor, Rolf Ekeus.
On the face of it, UNSCOM’s mandate was straightforward. UN Resolution 687, which set up UNSCOM (and which Iraq had accepted and agreed to support), had directed Iraq to “destroy, remove, or render harmless” its WMD and any missiles with a range greater than 150 kilometers. This process was to have three stages: Iraq would declare its WMD and missiles, UNSCOM would verify the declaration as accurate, and then together UNSCOM and the Iraqis would destroy them.
The Iraqis had given Ekeus a hard time; but his problems were nothing compared with the obstacles they were already putting in the way of his successor. Iraqi efforts to conceal their WMD programs — their “hideous charade,” in Butler’s words — were to have dramatic consequences for Tony Zinni.
Though Tony Zinni did not look like a recruiting poster, he was instantly recognizable as a Marine. He was slightly under medium height, solidly built, barrel-chested, with dark hair cut in the jarhead Marine fashion — very short with shaved back and sides. His look was normally intent, thoughtful, direct, and friendly; laughter came easily to him; and he had the social openness, warmth, and common touch that came from long exposure to all kinds and varieties of people. Hardened by a lifetime of military service — and most especially by Vietnam, which had radically changed him — tough decisions didn’t faze him.
Before becoming the head of UNSCOM, Richard Butler had been the Australian ambassador to the UN, with considerable expertise in arms control and WMD issues. Like Zinni, he came out of a working-class urban Catholic background (Zinni grew up in Philadelphia, Butler in Sydney); and, like Zinni, he was a burly, physically imposing man, friendly, direct, outspoken, and tough.
Not surprisingly, the two men connected easily. Both men listened well and were not reluctant to express their views.
Butler’s first words to Zinni made it clear that he would not play favorites. He’d call the pitches as he saw them. But a successful outcome to the inspections was all up to the Iraqis. If they opened up and came clean with their missiles and WMD, he would give them a clean bill of health, and they’d get their reward — the lifting of the draconian sanctions imposed as a consequence of their invasion of Kuwait in 1990.
So far they had shown zero inclination to come clean — anything but — while crying crocodile tears over their fellow Iraqis, who were enduring the terrible sanctions imposed by the American Satan. (Saddam’s henchmen, meanwhile, lived royally in palaces.)
When it came down to the naked truth, Saddam’s regime was far more interested in keeping their WMD and missile programs than in lifting the sanctions. Yet if they could get the sanctions removed while keeping their WMD, all the better.
Butler had no illusions about the other players in this high-stakes game, either: he was well aware that the Americans had their own agenda — not to mention the UN bureaucracy, the French, the Russians, the Chinese, and everyone else with a stake in what went on inside the nation with the world’s second-largest proven oil reserves… a nation whose government was arguably the most repressive since Stalin’s USSR.
The Iraqis, well aware of these agendas, played everyone off against each other, trying various gambits aimed at ending or at least weakening UNSCOM — from conning Butler, to putting a wedge in the Security Council, to appealing to the Secretary-General for a diplomatic solution (meaning a diplomatic surrender to Iraq). The Iraqis rightly believed that the French, Russians, and Chinese would stand to gain if the sanctions were removed; but their backing had conditions. It had to be covered over by a mask of support for the previous resolutions calling for disarmament. The Iraqis also rightly believed that the Secretary-General and his staff were hopeful of attaining a “diplomatic solution,” even if that meant sacrificing the Security Council’s goal of achieving Iraqi disarmament.
The U.S. agenda was even more subtle and complex. The Americans were increasingly coming to understand that disarmament would never happen with Saddam in power. It was therefore not in their interest for the Iraqis
As time passed, the Americans’ goal for Iraq shifted from the WMD-SANCTIONS equation to regime change — a goal they could not openly advocate because of the UN resolutions they had backed. Yet it was clear they had no intention of dropping the sanctions as long as Saddam Hussein’s regime ran Iraq.
The American policy shift did not make Richard Butler’s job any easier. It obviously meant there was no motivation for Saddam to comply with the UN conditions. If the regime and not the WMD was the issue, then there was no reason for them not to keep the WMD programs… Of course, that was an excuse and not a reason. Saddam intended to keep his programs no matter what.
Over the next months, the Iraqis did their best to scam Butler. The scam didn’t work. As they realized he was not a pushover — and was becoming increasingly exasperated by their lies and tricks — they ratcheted up the stakes with attempts at intimidation. By the end of October 1997, they were putting more and more obstacles in the way of the UNSCOM inspectors, and making serious and quite naked threats. At this point, they had two immediate goals: to protect several key sites they had designated “presidential”; and to remove anything “American” from the inspection process, including the U-2 flights. (Of the approximately one thousand UNSCOM inspection staff, about a quarter were American.)
Meanwhile, the Iraqi failure to cooperate had provoked CENTCOM contingency plans for retaliatory air strikes. Though there had been U.S. strikes against the Iraqis before Zinni became CINC, they had been relatively limited. Zinni’s strikes were intended to hurt.
The crisis came to a head in early November, when the Iraqis ordered all the American inspectors to leave Iraq and threatened to shoot down the U-2. Although hitting the high-flying aircraft would have taken a very lucky shot, it was possible.
The question: How to respond to the threat? A U-2 mission was scheduled for November 10. Obviously, an attempt to knock it out would be followed by American bombs. But was the threat alone reason enough to hit Saddam?
That was Zinni’s position. He did not favor flying the mission, preferring instead to strike Iraq immediately (based on the threat), or else to punish them in other ways, such as increasing the airspace in the no-fly zone/no- drive zone enforcement area.[3]
But Washington thought otherwise. Their decision was to fly the U-2; and Zinni was ordered to be prepared to conduct immediate air and missile attacks on Iraq if the plane was fired upon. In preparation for the strike, he flew out to the friendly countries in the Gulf to secure agreements to use their airspace, bases, and territorial waters for the strike — a round of visits he would make several times as head of CENTCOM.
On the way, he visited the U-2 pilots at their base in Saudi Arabia. There he learned that the squadron commander had decided to fly the flight himself, an act that impressed Zinni, who later awarded him an air medal for flying into the engagement zones of hostile Iraqi surface-to-air missiles.
Getting agreement from the friendly leaders in the region was not automatic. They were nervous about the strike. Though none had any illusions about the Iraqi leader, they all had a great deal of sympathy for the long- suffering Iraqi people — Arabs, just as they were. A solution that did nothing for the Iraqi people made no sense to them. Thus they all backed an attack that would remove Saddam, but in their minds, yet another round of “pinprick”
