Global Policy Forum

When it comes to fighting foreign wars, American presidents have been most successful when they adhered to a set of democratic principles: act with the consent of Congress, fight in alliance with other nations and exhaust diplomatic measures before going to war. As President Bush edges closer to a decision on whether to take up arms against Saddam Hussein, he sometimes acts as though these are trivial concerns that he can ignore in a rush to drive Mr. Hussein from power. That would be a terrible mistake that could cripple a military campaign before the first shot was fired and undermine American interests abroad.

Mr. Bush emphasized this weekend that he had yet to decide whether to use military force, and the Pentagon still seems to be drawing up possible battle plans rather than gathering forces for an imminent attack. If so, it is not too late for Mr. Bush and the nation to consider basic questions about Iraq. Earlier this month, this page talked about the potential military and political risks of trying to overthrow Mr. Hussein by force and installing a pro-Western government in Baghdad. Today we address some of the critically important steps that Mr. Bush must take if he hopes to win American and international support for a military campaign against Iraq.

The Constitution gives Congress alone the power to declare war. In modern times, presidents have used their own constitutional authority as commanders in chief to conduct undeclared wars, most notably in Vietnam. In the case of Iraq, the White House is weighing the use of military force to try to eliminate future dangers, rather than to respond to present aggression. That affords ample time for Congressional action. Bypassing Congress would also be politically irresponsible. Wars rarely proceed according to plan. Battlefield setbacks can swiftly erode public support. If that happened, Congressional involvement could temper the kind of divisions America experienced over Vietnam. At this point, administration officials, who met this weekend with representatives of Iraq's fragmented opposition, seem more interested in listening to the wishful talk of Iraqi dissidents than consulting with Congress.

Rarely in preparing for war has America seemed so isolated from potential military partners and allies as it does today in approaching Iraq. European and Arab leaders have expressed strong misgivings about the administration's war talk. Even Prime Minister Tony Blair of Britain, Washington's firmest European supporter, faces serious opposition at home on this issue.

If America went to war, allied support would help dissipate the impression abroad that the conflict was simply a grudge match between the Bush and Hussein clans. Without the help of allies, securing a durable peace in Iraq would be especially difficult. One of the biggest challenges following a war would be establishing a new Iraqi government that could attract popular support, live in peace with its neighbors and not require the long-term presence of American forces. Allies, especially Arab allies, would be indispensable to achieving this. The postwar period might also require the stationing of international peacekeepers and the provision of substantial reconstruction aid. The administration would also have to demonstrate that it had fully exhausted all diplomatic alternatives to war. For more than a decade, Iraq has tried to evade the disarmament provisions it agreed to at the end of the Persian Gulf war.

Circumstances seem favorable to a new American drive to unite the United Nations Security Council behind a demand that Iraq either accept full inspections or face possible military consequences. That would parallel the successful strategy Mr. Bush's father followed in winning Security Council authorization for the 1991 Persian Gulf war.

Whether or not diplomacy ultimately provides a solution, it is worth trying. Iraq already possesses biological and chemical weapons, and Mr. Hussein would probably not hesitate to use them in a desperate effort to prevent the dissolution of his regime. Potential targets could include American troops in the field, Israeli cities and Saudi and Kuwaiti oil export sites.

If there are reliable ways of keeping Iraq contained until it can be fully disarmed, they must be explored. Mr. Bush will do America no favor if he races headlong into war.

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