News & Analysis
State Dept. Study Foresaw Trouble Now Plaguing Iraq
By ERIC SCHMITT and JOEL BRINKLEY
Oct 19, 2003, 10:30

A yearlong State Department study predicted many of the problems that have plagued the American-led occupation of Iraq, according to internal State Department documents and interviews with administration and Congressional officials.

Beginning in April 2002, the State Department project assembled more than 200 Iraqi lawyers, engineers, business people and other experts into 17 working groups to study topics ranging from creating a new justice system to reorganizing the military to revamping the economy.

Their findings included a much more dire assessment of Iraq's dilapidated electrical and water systems than many Pentagon officials assumed. They warned of a society so brutalized by Saddam Hussein's rule that many Iraqis might react coolly to Americans' notion of quickly rebuilding civil society.

Several officials said that many of the findings in the $5 million study were ignored by Pentagon officials until recently, although the Pentagon said they took the findings into account. The work is now being relied on heavily as occupation forces struggle to impose stability in Iraq.

The working group studying transitional justice was eerily prescient in forecasting the widespread looting in the aftermath of the fall of Mr. Hussein's government, caused in part by thousands of criminals set free from prison, and it recommended force to prevent the chaos.

"The period immediately after regime change might offer these criminals the opportunity to engage in acts of killing, plunder and looting," the report warned, urging American officials to "organize military patrols by coalition forces in all major cities to prevent lawlessness, especially against vital utilities and key government facilities."

Despite the scope of the project, the military office initially charged with rebuilding Iraq did not learn of it until a major government drill for the postwar mission was held in Washington in late February, less than a month before the conflict began, said Ron Adams, the office's deputy director.

The man overseeing the planning, Tom Warrick, a State Department official, so impressed aides to Jay Garner, a retired Army lieutenant general heading the military's reconstruction office, that they recruited Mr. Warrick to join their team.

George Ward, an aide to General Garner, said the reconstruction office wanted to use Mr. Warrick's knowledge because "we had few experts on Iraq on the staff."

But top Pentagon officials blocked Mr. Warrick's appointment, and much of the project's work was shelved, State Department officials said. Mr. Warrick declined to be interviewed for this article.

The Defense Department, which had the lead role for planning postwar operations and reconstruction in Iraq, denied that it had shunned the State Department planning effort.

"It is flatly wrong to say this work was ignored," said the Pentagon spokesman Larry Di Rita. "It was good work. It was taken into account. It had some influence on people's thinking and it was a valuable contribution."

The broad outlines of the work, called the Future of Iraq Project, have been widely known, but new details emerged this week after the State Department sent Congress the project's 13 volumes of reports and supporting documents, which several House and Senate committees had requested weeks ago.

The documents are unclassified but labeled "official use only," and were not intended for public distribution, officials said. But Congressional officials from both parties allowed The New York Times to review the volumes, totaling more than 2,000 pages, revealing previously unknown details behind the planning.

Administration officials say there was postwar planning at several government agencies, but much of the work at any one agency was largely disconnected from that at others.

In the end, the American military and civilian officials who first entered Iraq prepared for several possible problems: numerous fires in the oil fields, a massive humanitarian crisis, widespread revenge attacks against former leaders of Mr. Hussein's government and threats from Iraq's neighbors. In fact, none of those problems occurred to any great degree.

Officials acknowledge that the United States was not well prepared for what did occur: chiefly widespread looting and related security threats, even though the State Department study predicted them.

Senior said the Pentagon squandered a chance to anticipate more of the postwar pitfalls by not fully incorporating the State Department information.