As for Israel, no one can be sure what it will do if threatened. Yet from the U.S. perspective, it looks as if a successful pre-emptive raid might be impossible—or at least so risky as to give the most determined Israeli planners pause. Partly this is because of the same lack of knowledge that handicaps the United States. When Menachem Begin dispatched Israeli fighter planes to destroy Iraq's Osirak plant, he knew there was only one target, and that if it was eliminated, Iraq's nuclear program would be set back for many years. In our scenario as in real life, the Americans thought Ariel Sharon and his successors could not be sure how many important targets were in Iran, or exactly where all of them were, or whether Israel could destroy enough of them to make the raid worth the international outrage and the likely counterattack. Plus, operationally it would be hard.
But for the purposes of our scenario, Israel kept up its threats to take unilateral action. It was time again for PowerPoint. Figure 2 shows the known targets that might be involved in some way in Iran's nuclear program. And figure 3 shows the route Israeli warplanes would have to take to get to them. Osirak, near Baghdad, was by comparison practically next door, and the Israeli planes made the round trip without refueling. To get to Iran, Israeli planes would have to fly over Saudi Arabia and Jordan, probably a casus belli in itself given current political conditions; or over Turkey, also a problem; or over American-controlled Iraq, which would require (and signal) U.S. approval of the mission.
With this the DCI left the podium—and Sam Gardiner, now sitting at the table as National Security Adviser, asked what initial assessments the principals made of the Iranian threat.
On one point there was concord. Despite Gardiner's emphasis on the tentative nature of the intelligence, the principals said it was sufficient to demonstrate the gravity of the threat. David Kay, a real-life nuclear inspector who was now the DCI at the table, said that comparisons with Iraq were important—and underscored how difficult the Iranian problem would be. "It needs to be emphasized," he said, "that the bases for conclusions about Iran are different, and we think stronger than they were with regard to Iraq." He explained that international inspectors withdrew from Iraq in 1998, so outsiders had suspicions rather than hard knowledge about what was happening. In Iran inspectors had been present throughout, and had seen evidence of the "clandestine and very difficult-to-penetrate nature of the program," which "leaves no doubt that it is designed for a nuclear-weapons program." What is worse, he said, "this is a lot more dangerous than the Iraqi program, in that the Iranians have proven, demonstrated connections with very vicious international terrorist regimes who have shown their willingness to use any weapons they acquire" against the United States and its allies. Others spoke in the same vein.
The real debate concerned Israel. The less America worried about reaction from Europe and the Muslim world, the more likely it was to encourage or condone Israeli action, in the hope that Israel could solve the problem on its own. The more it worried about long-term relations with the Arab world, the more determined it would be to discourage the Israelis from acting.
Most of the principals thought the Israelis were bluffing, and that their real goal was to put pressure on the United States to act. "It's hard to fault them for making this threat," said Pollack, as the Democratic Secretary of State, "because in the absence of Israeli pressure how seriously would the United States be considering this option? Based on my discussions with the Israelis, I think they know they don't have the technical expertise to deal with this problem. I think they know they just don't have the planes to get there—setting aside every other problem."
"They might be able to get there—the problem would be getting home," retorted Gerecht, who had the most positive view on the usefulness of an Israeli strike.
Bacon, as White House chief of staff, said, "Unless they can take out every single Iranian missile, they know they will get a relatively swift counterattack, perhaps with chemical weapons. So the threat they want to eliminate won't be eliminated." Both he and Pollack recommended that the Administration ask the Israelis to pipe down.
"There are two things we've got to remember with regard to the Israelis," Kay said. "First of all, if we tell them anything, they are certain to play it back through their network that we are 'bringing pressure to bear' on them. That has been a traditional Israeli response. It's the nature of a free democracy that they will do that. The second thing we've got to be careful of and might talk to the Israelis about: our intelligence estimate that we have three years to operate could change if the Iranians thought the Israelis might pre-empt sooner. We'd like to have that full three years, if not more. So when we're talking with the Israelis, toning down their rhetoric can be described as a means of dealing with the threat."
Woven in and out of this discussion was a parallel consideration of Iraq: whether, and how, Iran might undermine America's interests there or target its troops. Pollack said this was of great concern. "We have an enormous commitment to Iraq, and we can't afford to allow Iraq to fail," he said. "One of the interesting things that I'm going to ask the CentCom commander when we hear his presentation is, Can he maintain even the current level of security in Iraq, which of course is absolutely dismal, and still have the troops available for anything in Iran?" As it happened, the question never came up in just this form in the stage of the game that featured a simulated centcom commander. But Pollack's concern about the strain on U.S. military resources was shared by the other panelists. "The second side of the problem," Pollack continued, "is that one of the things we have going for us in Iraq, if I can use that term, is that the Iranians really have not made a major effort to thwart us … If they wanted to make our lives rough in Iraq, they could make Iraq hell." Provoking Iran in any way, therefore, could mean even fewer troops to handle Iraq—and even worse problems for them to deal with.
Kay agreed. "They may decide that a bloody defeat for the United States, even if it means chaos in Iraq, is something they actually would prefer. Iranians are a terribly strategic political culture … They might well accelerate their destabilization operation, in the belief that their best reply to us is to ensure that we have to go to helicopters and evacuate the Green Zone."
More views were heard—Gerecht commented, for example, on the impossibility of knowing the real intentions of the Iranian government—before Gardiner called a halt to this first phase of the exercise. He asked for a vote on one specific recommendation to the President: Should the United States encourage or discourage Israel in its threat to strike? The Secretary of Defense, the DCI, the White House chief of staff, and Secretary of State Pollack urged strong pressure on Israel to back off. "The threat of Israeli military action both harms us and harms our ability to get others to take courses of action that might indeed affect the Iranians," Kay said. "Every time a European hears that the Israelis are planning an Osirak-type action, it makes it harder to get their cooperation." Secretary of State Gerecht thought a successful attack was probably beyond Israel's technical capability, but that the United States should not publicly criticize or disagree with its best ally in the Middle East.
Sam Gardiner took the podium again. Now he was four-star General Gardiner, commander of CentCom. The President wanted to understand the options he actually had for a military approach to Iran. The general and his staff had prepared plans for three escalating levels of involvement: a punitive raid against key Revolutionary Guard units, to retaliate for Iranian actions elsewhere, most likely in Iraq; a pre-emptive air strike on possible nuclear facilities; and a "regime change" operation, involving the forcible removal of the mullahs' government in Tehran. Either of the first two could be done on its own, but the third would require the first two as preparatory steps. In the real world the second option—a pre-emptive air strike against Iranian nuclear sites—is the one most often discussed. Gardiner said that in his briefing as war-game leader he would present versions of all three plans based as closely as possible on current military thinking. He would then ask the principals to recommend not that an attack be launched but that the President authorize the preparatory steps to make all three possible.