Foreign policy is always difficult in a democracy. Democracy requires openness. Yet foreign policy requires a level of secrecy that frees it from oversight and exposes it to abuse. As a result, Republicans and Democrats have long held that the intelligence agencies--the most clandestine of foreign policy institutions--should be insulated from political interference in much the same way as the higher reaches of the judiciary. As the Tower Commission, established to investigate the Iran-Contra scandal, warned in November 1987, “The democratic processes ... are subverted when intelligence is manipulated to affect decisions by elected officials and the public.”
If anything, this principle has grown even more important since September 11, 2001. The Iraq war presented the United States with a new defense paradigm: preemptive war, waged in response to a prediction of a forthcoming attack against the United States or its allies. This kind of security policy requires the public to base its support or opposition on expert intelligence to which it has no direct access. It is up to the president and his administration--with a deep interest in a given policy outcome--nonetheless to portray the intelligence community’s findings honestly. If an administration represents the intelligence unfairly, it effectively forecloses an informed choice about the most important question a nation faces: whether or not to go to war. That is exactly what the Bush administration did when it sought to convince the public and Congress that the United States should go to war with Iraq.
From late August 2002 to mid-March of this year, the Bush administration made its case for war by focusing on the threat posed to the United States by Saddam Hussein’s nuclear, chemical, and biological weapons and by his purported links to the Al Qaeda terrorist network. Officials conjured up images of Iraqi mushroom clouds over U.S. cities and of Saddam transferring to Osama bin Laden chemical and biological weapons that could be used to create new and more lethal September elevenths. In Nashville on August 26, 2002, Vice President Dick Cheney warned of a Saddam “armed with an arsenal of these weapons of terror” who could “directly threaten America’s friends throughout the region and subject the United States or any other nation to nuclear blackmail.” In Washington on September 26, Secretary of Defense Donald Rumsfeld claimed he had “bulletproof” evidence of ties between Saddam and Al Qaeda. And, in Cincinnati on October 7, President George W. Bush warned, “The Iraqi dictator must not be permitted to threaten America and the world with horrible poisons and diseases and gases and atomic weapons.” Citing Saddam’s association with Al Qaeda, the president added that this “alliance with terrorists could allow the Iraqi regime to attack America without leaving any fingerprints.”