The Russians win this round
John Kerry went to Munich this week looking for a ceasefire and humanitarian access. He got a “cessation of hostilities,” which implies less legal status and less permanence, and a promise of immediate humanitarian access. This was entirely predictable and predicted: the cessation of hostilities freezes the recent Russian/Iranian/Syrian government gains in place on the ground around Aleppo. Humanitarian access will shift the burden of feeding and sheltering hundreds of thousands of besieged Syrians from their own government to the international community.
Just as predictable as this agreement is its breakdown. There is no neutral party to monitor implementation. Even if the moderate forces represented in the High Negotiation Commission, which gave a nod to the deal, restrain their cadres, there are lots of other fighters all over Syria, including extremists associated with the Islamic State and Al Qaeda who are uninterested in stopping the hostilities. The Russian-backed offensive never made any distinction between extremists and relative moderates, whom it slew with abandon. Some of the relative moderates will continue their efforts to flee northwards. Others who remain will swell the ranks of the extremists.
It would be surprising if an agreement built on such shifting sands were to last more than a couple of weeks. The Russians, Iranians, Hizbollah and Syrian forces will suffer many potshots and will at some point decide to take to opportunity to go at it again. The opposition will be trying to regain its footing, but that will be difficult as civilians flee and extremists recruit. The Americans have given no indication of any willingness to beef up arms to the opposition or to allow the Saudis and Gulf monarchies to deliver anti-aircraft and other higher quality weapons. The logistical advantage lies with the regime and its allies, who are not besieged and will more easily rearm and resupply.
So the next round, whenever it occurs, is likely to find the opposition at an even greater military disadvantage. Russia may want to help the Syrian Kurds take control of the entire northern border of Syria with Turkey, thereby boxing in the remaining opposition forces in the north. That could trigger a Turkish intervention, widening the war and weakening America’s best allies, the Kurds, in fighting the Islamic State. The Russians will also want to clear out the opposition forces near Damascus and in the south, where Russian air strikes had intensified in recent days. It is hard to say that the regime may “win” this war, because much of the country will be destroyed, but Assad could end up remaining in the presidential palace and presiding but not ruling over a fragmented and desperate country.
Without a political agreement that leads to his certain departure, it is hard for me to picture the Americans, Europeans and Gulf states supporting any significant reconstruction. Washington has already spent upwards of $5 billion on humanitarian aid and will presumably spend billions more. The Russians and Iranians, so far as I know, haven’t spent a dime on humanitarian aid yet. With oil prices around $30/barrel, both Moscow and Tehran will be hard strapped. Even at $80/barrel they wouldn’t have much to spare. They won’t be willing to spend any significant amount on reconstruction in Syria.
So an Assad “win” will make Syria a ward of poor step-parents with their own offspring to nurture. Some days I think the opposition should just stop fighting and allow the regime to confront the challenges of governing post-war Syria, with its ruined infrastructure, its decimated security forces, its limited oil production, its drought-ridden agriculture, and its dwindling water resources. How long would Assad last? Many Syrians have already been governing themselves through local councils for the better part of five years. It is going to be hard to take the legitimacy and authority they have built up back and stockpile it again in Damascus. Assad may win the military fight, but he has lost his country.
The Russians and Iranians are also likely losers in the long term. They have doubled down on supporting Assad. Their efforts will drive more Syrians to support extremists and guarantee that no successor regime will be friendly to their interests.
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