July 29, 2008
Current U.S. strategy against the terrorist group al Qaida has not been successful in significantly undermining the group's capabilities, according to a new RAND Corporation study issued today.
Al Qaida has been involved in more terrorist attacks since Sept. 11, 2001, than it was during its prior history and the group's attacks since then have spanned an increasingly broader range of targets in Europe, Asia, the Middle East and Africa, according to researchers.
In looking at how other terrorist groups have ended, the RAND study found that most terrorist groups end either because they join the political process, or because local police and intelligence efforts arrest or kill key members. Police and intelligence agencies, rather than the military, should be the tip of the spear against al Qaida in most of the world, and the United States should abandon the use of the phrase "war on terrorism," researchers concluded.
"The United States cannot conduct an effective long-term counterterrorism campaign against al Qaida or other terrorist groups without understanding how terrorist groups end," said Seth Jones, the study's lead author and a political scientist at RAND, a nonprofit research organization. "In most cases, military force isn't the best instrument."
The comprehensive study analyzes 648 terrorist groups that existed between 1968 and 2006, drawing from a terrorism database maintained by RAND and the Memorial Institute for the Prevention of Terrorism. The most common way that terrorist groups end -- 43 percent -- was via a transition to the political process. However, the possibility of a political solution is more likely if the group has narrow goals, rather than a broad, sweeping agenda like al Qaida possesses.
The second most common way that terrorist groups end -- 40 percent -- was through police and intelligence services either apprehending or killing the key leaders of these groups. Policing is especially effective in dealing with terrorists because police have a permanent presence in cities that enables them to efficiently gather information, Jones said.
Military force was effective in only 7 percent of the cases examined; in most instances, military force is too blunt an instrument to be successful against terrorist groups, although it can be useful for quelling insurgencies in which the terrorist groups are large, well-armed and well-organized, according to researchers. In a number of cases, the groups end because they become splintered, with members joining other groups or forming new factions. Terrorist groups achieved victory in only 10 percent of the cases studied.
Jones says the study has crucial implications for U.S. strategy in dealing with al Qaida and other terrorist groups. Since al Qaida's goal is the establishment of a pan-Islamic caliphate, a political solution or negotiated settlement with governments in the Middle East is highly unlikely. The terrorist organization also has made numerous enemies and does not enjoy the kind of mass support received by other organizations such as Hezbollah in Lebanon, largely because al Qaida has not engaged in sponsoring any welfare services, medical clinics, or hospitals.
The study recommends the United States should adopt a two-front strategy: rely on policing and intelligence work to root out the terrorist leaders in Europe, North America, Asia and the Middle East, and involve military force -- though not necessarily the U.S. military -- when insurgencies are involved.
The United States also should avoid the use of the term, "war on terror," and replace it with the term "counterterrorism." Nearly every U.S. ally, including the United Kingdom and Australia, has stopped using "war on terror," and Jones said it's more than a mere matter of semantics.
"The term we use to describe our strategy toward terrorists is important, because it affects what kinds of forces you use," Jones said. "Terrorists should be perceived and described as criminals, not holy warriors, and our analysis suggests that there is no battlefield solution to terrorism."
Among the other findings, the study notes:
- Religious terrorist groups take longer to eliminate than other groups. Since 1968, approximately 62 percent of all terrorist groups have ended, while only 32 percent of religious terrorist groups have done so.
- No religious terrorist group has achieved victory since 1968.
- Size is an important predictor of a groups' fate. Large groups of more than 10,000 members have been victorious more than 25 percent of the time, while victory is rare when groups are smaller than 1,000 members.
- There is no statistical correlation between the duration of a terrorist group and ideological motivation, economic conditions, regime type or the breadth of terrorist goals.
- Terrorist groups that become involved in an insurgency do not end easily. Nearly 50 percent of the time they end with a negotiated settlement with the government, 25 percent of the time they achieved victory and 19 percent of the time, military groups defeated them.
- Terrorist groups from upper-income countries are much more likely to be left-wing or nationalistic, and much less likely to be motivated by religion.
"The United States has the necessary instruments to defeat al Qaida, it just needs to shift its strategy and keep in mind that terrorist groups are not eradicated overnight," Jones said.
The study, "How Terrorist Groups End: Lessons for Countering al Qaida," can be found at www.rand.org.
The report was prepared by the RAND National Defense Research Institute, a federally funded research and development center that does research for the Office of the Secretary of Defense, the Joint Staff, the unified commands and other defense agencies.