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1. When Less Is More: Rethinking U.S. Military Strategy and Posture in the Middle East

Author:
Ilan Goldenberg, Becca Wasser, Elisa Catalano Ewers, and Lilly Blumenthal
Publication Date:
11-2021
Content Type:
Special Report
Institution:
Center for a New American Security (CNAS)
Abstract:
For the past 20 years, the U.S. military has invested heavily in the Middle East. Presidents Barack Obama and Donald Trump both attempted to shift assets out of the region and put a greater focus on the Indo-Pacific, but both were drawn back into the Middle East. Now, President Joe Biden again has put an emphasis on the Indo-Pacific, and Secretary of Defense Lloyd Austin has emphasized the importance of China as the Department of Defense’s “pacing challenge.” Effectively realizing the new administration’s shift in priority—and avoiding the cycle of drawing forces out of the Middle East only to have new crises pull them back in—requires an assessment of how the United States can continue to protect its core interests in the Middle East with a smaller and smarter footprint. This paper is the beginning of an effort to answer this question. It methodically outlines what key U.S. interests and objectives should be in the Middle East to develop the appropriate U.S. force posture to meet the security challenges of today and tomorrow. It then describes the key military activities necessary to protect those interests and achieve those objectives, in some cases breaking old assumptions and identifying areas where the United States can afford to accept more risk. Finally, it begins to outline the associated military assets necessary to pursue those activities and ends by identifying areas where the United States can look to alter its presence and activities in the region. The conclusion of this analysis is that the United States still has vital interests in the Middle East that require a level of military investment in the region. However, those interests are more limited, and the United States must be willing to accept more risk in the Middle East while also prioritizing non-military tools. Given challenges and strategic interests elsewhere in the world and at home, it is time to consider how the United States might approach force posture in the region differently than in the past.
Topic:
Foreign Policy, National Security, Military Strategy, and Strategic Interests
Political Geography:
Middle East and United States of America

2. The Future of the Digital Order

Author:
Jeff Cirillo, Sarah Curtis, Joshua Fitt, Kara Frederick, Coby Goldberg, Ilan Goldenberg, Andrea Kendall-Taylor, Megan Lamberth, Martijn Rasser, and Dania Torres
Publication Date:
11-2021
Content Type:
Special Report
Institution:
Center for a New American Security (CNAS)
Abstract:
Nations that successfully harness the vast economic, political, and societal power of emerging information and communications technologies will shape the future of the global digital order. This future is not set in stone. A digital order defined by liberal democratic values requires U.S. leadership and the cooperation of trusted like-minded partners. In the absence of democratic leadership, autocratic rivals of the United States can fill that void—exploiting the control of information, surveillance technologies, and standards for technology governance to promote a digital ecosystem that entrenches and expands their authoritarian practices. In exploring how a closed, illiberal order is taking root in strategic regions around the world, this report offers recommendations for how to craft, promote, and preserve a more open and democratic alternative. An assessment of crosscutting trends between China, Russia, and the Middle East across three pillars—information control, surveillance, and technology governance—leads us to the following conclusions: China is the prime mover in shaping the evolving digital order in its favor. Beijing’s use of technologies such as facial recognition software and telecommunications networks allows the Chinese Communist Party (CCP) to expand control over its citizens. The CCP’s ability to promote and export this model of digital repression, in turn, gives like-minded, nondemocratic governments a roadmap for how to deploy digital technologies for control and abuse in their own countries. Russia’s model of digital authoritarianism, while technologically less sophisticated than China’s, could prove to be more readily adaptable and enduring for current and aspiring autocrats. Regional powers such as Belarus, Azerbaijan, and some Central Asian states have already incorporated elements of this model. In the Middle East, authoritarian leaders use digital tools to control internal populations by sabotaging and spying on citizens, and this contributes to the construction of an illiberal digital order that is beneficial to America’s peer competitors—China and Russia. These conclusions reveal four key trends with implications for the future of the digital order: Growing China-Russia alignment will generate dangerous digital synergies, such as (1) making digital autocracy accessible for a broader swath of states; (2) accelerating China’s and Russia’s digital innovation; (3) eroding liberal norms in international institutions; and (4) raising the prospects of a “splinternet,” a fragmenting of the internet along nationalistic, political, technological, religious, or ethnic lines. Countries around the world, particularly autocratic regimes and those flirting with illiberalism, will seek to regulate online communications platforms through (1) social media; (2) data localization laws; and (3) instigating company self-censorship, which restricts free speech and increases online control. Illiberal regimes will seek out Chinese technology to help them control social movements and civil protests. U.S. nondemocratic partners, adversaries, and even some democratic partners justify their pursuit of Chinese technology by underscoring ways the adopted technologies will contribute to economic growth, social stability, and efforts to fight crime and terrorism. The practices of illiberal regimes will reduce the efficacy of U.S. mitigation practices. Russia and China’s efforts to promote an illiberal digital order complement one another and could accelerate innovation between the two nations. The United States must craft a policy response that considers these emerging patterns and incorporates more than its usual partners in Europe and the Indo-Pacific. Shoring up the existing coalition of democratic actors to counter these illiberal trends will likely not be sufficient. This report offers recommendations that the United States can implement on three fronts: at home, while engaging with traditional U.S. democratic as well as nondemocratic partners, and when countering U.S. adversaries such as China, Russia, and Iran. The United States must take a leadership role, recognizing that the future digital order is at stake.
Topic:
Science and Technology, Governance, Authoritarianism, Leadership, Surveillance, and Digitalization
Political Geography:
Russia, China, Middle East, North America, and United States of America

3. A New U.S. Strategy for the Israeli-Palestinian Conflict

Author:
Ilan Goldenberg, Michael Koplow, and Tamara Coffman Wittes
Publication Date:
12-2020
Content Type:
Special Report
Institution:
Center for a New American Security (CNAS)
Abstract:
Today’s realities demand that the United States change its approach to the Israeli-Palestinian conflict. Its current focus is on high-profile diplomatic initiatives that aim for a permanent agreement in which the United States is the central mediator. Instead, the United States must focus on taking tangible steps, both on the ground and diplomatically, that will improve the freedom, prosperity, and security of all people living between the Mediterranean Sea and the Jordan River, while also cultivating the conditions for a future two-state agreement negotiated between the parties.
Topic:
Diplomacy, Territorial Disputes, Conflict, and Negotiation
Political Geography:
Israel, Palestine, and United States of America

4. Toward a More Proliferated World? The Geopolitical Forces that Will Shape the Spread of Nuclear Weapons

Author:
Eric M. Brewer, Ilan Goldenberg, Joseph Rodgers, Maxwell Simon, and Kaleigh Thomas
Publication Date:
09-2020
Content Type:
Special Report
Institution:
Center for a New American Security (CNAS)
Abstract:
The United States and the international community have been relatively successful at preventing the spread of nuclear weapons, but there are new reasons to question whether this track record will last into the future. Working with partners, the United States has steadily built a framework of disincentives and barriers to prevent proliferation. These include: 1) international treaties and agreements that have erected legal, political, and normative barriers to the bomb; 2) U.S. security commitments to allies that dampen their own perceived need for nuclear weapons; and, 3) a set of tough penalties (e.g., sanctions) for those who get caught trying to build the bomb. In other words, the barriers to entry to the nuclear club are high, and those countries that want the ultimate weapon need to be willing to accept significant risks. This helps explain why, although many countries have explored or pursued nuclear weapons, only nine states have them today. But several trends are eroding the foundation on which this formidable set of barriers rests. These trends are rooted in, and being shaped by, changes to the nature and structure of the international system: namely, the decline of U.S. influence and its gradual withdrawal from the international order that it helped create and lead for more than 70 years, and the concurrent rise of a more competitive security environment, particularly among great powers. These trends (detailed below) will have three broad implications for proliferation and U.S. policy. First, they stand to increase pressures on countries to seek nuclear weapons or related capabilities as a hedge. Second, they will almost certainly challenge the U.S. ability to effectively wield the traditional “carrots and sticks” of nonproliferation and counterproliferation policy and dilute the effectiveness of those tools. Finally, they could increasingly pit U.S. nonproliferation goals against other policy objectives, forcing harder tradeoffs.
Topic:
Security, Arms Control and Proliferation, Nuclear Weapons, Geopolitics, Nonproliferation, and Post Cold War
Political Geography:
Global Focus and United States of America

5. Reengaging Iran: A New Strategy for the United States

Author:
Ilan Goldenberg, Elisa Catalano Ewers, and Kaleigh Thomas
Publication Date:
08-2020
Content Type:
Special Report
Institution:
Center for a New American Security (CNAS)
Abstract:
It appears unlikely that Iran will engage in diplomatic negotiations with President Donald Trump’s administration before the U.S. elections. However, the international community may find Iran ready to consider a return to negotiations in 2021—regardless of the results in November—either because of Iran’s interest in engaging a Biden administration or in an effort to avoid four more years of the Trump administration’s maximum pressure campaign. This report lays out potential options for a new U.S. administration to engage Iran in 2021. Many of the ideas also can be adapted for a second term Trump administration as described at the end of this report.
Topic:
Security, Diplomacy, Nuclear Weapons, and Engagement
Political Geography:
Iran, Middle East, North America, and United States of America

6. Countering Iran in the Gray Zone: What the United States Should Learn from Israel’s Operations in Syria

Author:
Ilan Goldenberg, Nicholas Heras, Kaleigh Thomas, and Jennie Matuschak
Publication Date:
04-2020
Content Type:
Special Report
Institution:
Center for a New American Security (CNAS)
Abstract:
Since the Islamic Revolution in 1979 and especially since the U.S. invasion of Iraq in 2003, Iran has become highly proficient in using its surrogates and proxies across the Middle East as a tool to achieve its interests while avoiding direct conflict with the United States. Successive U.S. presidents have sought options for pushing back against this Iranian strategy but have struggled to find approaches that could deter Iran’s actions or degrade its capabilities. In most cases U.S. administrations have been hesitant to respond at all, for fear of starting a larger conflict. The recent killing of Qassim Soleimani represents the opposite problem, in which the United States and Iran came unnecessarily close to a much larger war. In contrast, Israel’s “campaign between the wars” (the Hebrew acronym is mabam) against Iran and Iranian-backed groups in Syria has been one of the most successful military efforts to push back against Iran in the “gray zone.” Since the start of the Syrian civil war in 2011, and especially since early 2017, Israel has conducted more than 200 airstrikes inside Syria against more than 1,000 targets linked to Iran and it’s Islamic Revolutionary Guard Corps Quds Force (IRGCQF), and against IRGC-QF backed groups such as the Lebanese Hezbollah. This campaign has slowed Iran’s military buildup in Syria while avoiding a broader regional conflagration that would have been damaging to Israel’s interests.1 This study examines Israel’s mabam campaign and asks what lessons the United States can draw and how they may be applied to future U.S. actions in gray zone conflicts, both against Iran and more broadly.
Topic:
Security, Foreign Policy, Military Affairs, Conflict, and Syrian War
Political Geography:
Iran, Middle East, Israel, and Syria

7. In Dire Straits? Implications of U.S.-Iran Tensions for the Global Oil Market

Author:
Ilan Goldenberg, Kaleigh Thomas, and Jessica Schwed
Publication Date:
11-2019
Content Type:
Special Report
Institution:
Center for a New American Security (CNAS)
Abstract:
In recent months, Iran has responded to rising tensions with the United States—particularly the US launch of the “maximum pressure” campaign against Iran—by attacking oil tankers and infrastructure in the Persian Gulf region around the Strait of Hormuz (the Strait). These actions have been designed to signal to the United States, the Gulf states, and the international community that the American strategy of strangling Iran economically will not be cost-free, and to Saudi Arabia in particular that it is highly vulnerable to Iranian retaliation. As the Strait of Hormuz is one of the world’s most critical energy chokepoints, the implications of Iran’s efforts merit close scrutiny and analysis. This study was designed to examine three scenarios for military conflict between Iran and the United States and assess the potential impacts on global oil prices—as one specific representation of the immediate economic impact of conflict—as well as broader strategic implications.
Topic:
International Trade and Finance, Oil, and Global Markets
Political Geography:
Iran, Middle East, North America, and United States of America

8. Escalation or Negotiation? Conclusions of a Tabletop Exercise on the Future of U.S.-Iran Relations

Author:
Elisa Catalano Ewers, Ilan Goldenberg, Nicholas Heras, and Kaleigh Thomas
Publication Date:
06-2019
Content Type:
Special Report
Institution:
Center for a New American Security (CNAS)
Abstract:
On May 21, the Center for a New American Security (CNAS) hosted an all-day tabletop exercise (TTX) in Washington, D.C., to game out three scenarios related to the crisis surrounding U.S.-Iran tensions over Iran’s nuclear enrichment program and destabilizing regional policies. The intent was to understand how key players would respond and act in these potential scenarios. The TTX included seven teams: the United States, Iran, Europe (representing primarily France, Germany, and the United Kingdom but also the European Union), China, Russia, Israel, and the Gulf Arab States (one player as Saudi Arabia/UAE and the other player as Oman). Teams featured American and foreign regional and functional experts with a deep experience in their respective areas. Players were asked to play the most realistic version of their government.
Topic:
Security, Foreign Policy, and Bilateral Relations
Political Geography:
Iran, Middle East, North America, and United States of America

9. Slow and Steady: Improving U.S.-Arab Cooperation to Counter Irregular Warfare

Author:
Ilan Goldenberg, Nicholas Heras, and Kaleigh Thomas
Publication Date:
04-2019
Content Type:
Special Report
Institution:
Center for a New American Security (CNAS)
Abstract:
Since 9/11 the United States has struggled with how to respond to the challenges posed by ungoverned spaces in the Middle East, from which terrorist attacks and destabilizing mass refugee flows emanate. The collapse of state authority in Iraq, Syria, Yemen, and Libya has created security vacuums that extremist groups such as the Islamic State of Iraq and Syria (ISIS) and al Qaeda have used to develop local presence, to organize, and eventually to conduct attacks both inside these countries as well as in Europe and the United States. Meanwhile, the refugee flows that have resulted from these conflicts have put tremendous pressure on neighboring countries and also caused a massive wave of refugees into Europe. The question facing the United States and other Western allies is how to deal with these challenges without getting sucked into complex and costly civil wars that the United States has little ability to end on its own. Full-scale American-led counterinsurgency, stabilization campaigns, or other resource-intensive nation-shaping interventions attempted in Afghanistan and Iraq have proven to be unsustainable models given the high costs, indecisive outcomes, and lack of political support at home. However, completely withdrawing U.S. forces and counting purely on intelligence collection to monitor threats and local partners to address them has been ineffective, as this approach leaves the United States vulnerable to attacks. The most successful effort the United States has launched to deal with these challenges in recent years has been the counter-ISIS campaign in Iraq and Syria, where it has succeeded in protecting U.S. interests at a reasonable cost by working “By, With, and Through” local actors. In this model the United States generally: (1) uses a comparatively small number of troops to train, equip, advise, assist, or accompany local forces with legitimacy on the ground; (2) provides airpower and some enablers and logistics; (3) uses its limited military investment as leverage for a broader diplomatic effort; or (4) invests in building local governance and providing aid on the ground.
Topic:
Civil War, International Cooperation, Counterinsurgency, and Syrian War
Political Geography:
Middle East, Arab Countries, Syria, North America, and United States of America

10. In Dire Straits? Implications of US-Iran Tensions for the Global Oil Market

Author:
Ilan Goldenberg, Jessica Schwed, and Kaleigh Thomas
Publication Date:
11-2019
Content Type:
Working Paper
Institution:
Center on Global Energy Policy (CGEP), Columbia University
Abstract:
In recent months, Iran has responded to rising tensions with the United States—particularly the US launch of the “maximum pressure” campaign against Iran—by attacking oil tankers and infrastructure in the Persian Gulf region around the Strait of Hormuz (the Strait). These actions have been designed to signal to the United States, the Gulf states, and the international community that the American strategy of strangling Iran economically will not be cost-free, and to Saudi Arabia in particular that it is highly vulnerable to Iranian retaliation. As the Strait of Hormuz is one of the world’s most critical energy chokepoints, the implications of Iran’s efforts merit close scrutiny and analysis. This study was designed to examine three scenarios for military conflict between Iran and the United States and assess the potential impacts on global oil prices—as one specific representation of the immediate economic impact of conflict—as well as broader strategic implications. The three scenarios are: Increasing US-Iran tensions that ultimately lead to a new “Tanker War” scenario similar to the conflict of the 1980s, in which Iran attacks potentially hundreds of ships in the Persian Gulf and Gulf of Oman over a prolonged period while also launching missiles at Gulf oil infrastructure. An escalation of tensions between Iran and the United States in which Iran significantly increases the scope and severity of missile attacks directed at major oil and energy infrastructure in Saudi Arabia and the UAE. A major conflict between Iran and the United States that includes damage to Gulf oil infrastructure and a temporary closure of the Strait of Hormuz. Its main conclusions are: The risk of a major military confrontation between the United States and Iran has increased in recent months but still remains relatively low, as neither the United States nor Iran wants war. That said, the September 14, 2019, attack on the Abqaiq and Khurais facilities was a strategic game changer and shows that the biggest risk is a prolonged, low-intensity military conflict. The fact that Iran was willing to conduct such an attack was a surprise to most analysts and to the US government and its Gulf partners. The level of accuracy it showed in the strike demonstrated a technical proficiency the US government and outside analysts did not believe Iran had. In the more moderate and likely conflict scenarios, increasing tensions between the United States and Iran are unlikely to dramatically affect global oil prices. The most profound costs in the more likely scenarios are not energy-related but security-related. Even in the less escalatory scenarios, the United States would be forced into long-term deployments of a large number of air and naval assets that would need to remain in the Middle East for years at a cost of billions of dollars. Such deployments would take away resources that would otherwise be dedicated to managing great power competition with China and Russia. In the more extreme conflict scenarios, major loss of life and an even bigger and longer-term American military deployment would be expected. In the lower likelihood scenario of a major military confrontation between the United States and Iran, global oil prices would be dramatically affected, though price impacts would not be prolonged. All assumptions about the potential impacts on oil prices are based on the supposition that the United States protects global shipping lanes, but that theory deserves further scrutiny. For more than a generation, the United States has viewed securing global shipping lanes that are critical for commerce and energy as a core vital interest. But given the isolationist tendencies in the United States and President Donald Trump’s attitude that America should stop underwriting the defense of its allies, it is conceivable he may choose not to respond in the types of scenarios described in this paper or demand that countries most dependent on oil trade from the Gulf—most notably China—step up instead. Another wild card for oil prices in a major crisis scenario would be President Trump’s unpredictable policies regarding the Strategic Petroleum Reserve. Typically, an administration would be expected to coordinate an international response with the International Energy Agency (IEA) to release the SPR of a number of countries, but this cannot be assumed in the current administration. Though these conclusions are to some extent comforting, the authors acknowledge that a key issue with any analysis of this situation is the unpredictability of the United States. In the present moment, neither US adversaries nor partners know quite what to expect—and, for that matter, neither does the US government or its observers.
Topic:
Foreign Policy, Energy Policy, Oil, and Global Political Economy
Political Geography:
United States, China, Iran, Middle East, and Asia