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When Muammar el-Qaddafi first struck back against protesters, Obama hoped that tough sanctions and material support to the opposition would be enough to force the dictator from power. Defense Secretary Robert Gates warned him that a "no fly zone" would be ineffective and essentially commit the country to war. By Monday night, it was clear to Obama that this policy wasn't working. Countries like Iran were getting the wrong message. The Libyan military was selectively testing the patience of the world by striking opposition strongholds. The opposition was pinned down in the port city of Benghazi, swelled by tens of thousands of refugees. Qaddafi kept using a phrase that stuck in Obama's head: "no mercy." And France, smarting from seeming to abandon Egyptians during their time of trouble, along with the U.K., were champing at the bit to use force. The Arab League had kicked Libya out and was closer to the French position. It risked its own legitimacy, already questioned by many in the region, if it didn't side with the rebels.
On Tuesday, during a meeting of his national security team, Obama said he wanted a new policy. "Clearly, what we're doing is not enough," he said, according to contemporaneous notes kept by a participant. A "humanitarian disaster" was imminent unless something was done. He wanted more options.
Gates wanted to game out scenarios, knowing that any effective no-fly zone would necessitate a cascade of other military actions that would look a heck of a lot like an invasion, no matter how carefully it was done.
Thomas Donilon, the national security adviser and one of the gatekeepers of Obama's foreign policy, was worried about the strategic implications of both allowing Qaddafi to succeed in retaking control of Benghazi as well as what would happen down the road in other countries if a successful military response ousted him from power with a minimum of bloodshed. Even the lightest military footprint would result in civilian casualties, he warned. Almost as inevitable would be the death of a coalition soldier or the downing of an airplane.
Hillary Rodham Clinton said instability in Libya threatened to clip the democratic aspirations of its two neighbors, Egypt and Tunisia. She was also worried about the message to Iran if the U.S. and its allies did nothing in Libya: America was so afraid of committing its military to protect Muslims and Arabs that it would allow virtually anything to happen.
The meeting broke up.
Donilon would take charge of a rapid-fire series of conference calls and meetings and would, by that night, bring to the president three new policy proposals, each of which would call for a mix of diplomatic, military and intelligence actions against Libya. Obama had dinner with his combat commanders, and solicited their input about what challenges the military would face. At 9 p.m. that night, he reconvened only his principals. (Clinton was represented by her deputy, James Steinberg.) Donilon laid out his proposals. After about an hour, the Situation Room had come to a rough consensus: a no fly zone wouldn't work, but more words would not work either. Obama instructed his U.N. ambassador, Susan Rice, to inform the Security Council that France's resolution, which called for a no fly zone and little else, was insufficient. He asked the chairman of the Joint Chiefs of Staff, Mike Mullen, to turn into him by the next evening a Concept of Operation Plan, or CONPLAN, for a NATO-executed military campaign in Libya that would be assisted by Arab countries.
In closed session at the U.N., Rice laid out the U.S. position. The situation was urgent and dire. But the world had to know precisely what it would mean to keep Libyan troops from murdering their own citizens. Any resolution would have to include language authorizing strikes against Libyan military infrastructure on the ground to prevent a humanitarian catastrophe. "We are not going to hide pooch," Rice said in the meeting, according to a U.S. official. "We must be completely clear about what we are going to do and why." And Arab countries must participate, she insisted, in some visible way, in the campaign. She proposed a number of amendments that added significant heft to the resolution.
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