This is the first part of a two-part look at the rationale for fighting the war on terrorism in Iraq.

By George P. Shultz ~ From The Wall Street Journal

We have struggled with terrorism for a long time. In the Reagan administration, I was a hawk on the subject. I said terrorism is a big problem, a different problem, and we have to take forceful action against it. Fortunately, Ronald Reagan agreed with me, but not many others did. (Don Rumsfeld was an outspoken exception.) In those days we focused on how to defend against terrorism. We reinforced our embassies and increased our intelligence effort. We thought we made some progress. We established the legal basis for holding states responsible for using terrorists to attack Americans anywhere. Through intelligence, we did abort many potential terrorist acts. But we didn't really understand what motivated the terrorists or what they were out to do.

In the 1990s, the problem began to appear even more menacing. Osama bin Laden and al-Qaida were well known, but the nature of the terrorist threat was not yet comprehended and our efforts to combat it were ineffective. Diplomacy without much force was tried. Terrorism was regarded as a law enforcement problem and terrorists as criminals. Some were arrested and put on trial. Early last year, a judge finally allowed the verdict to stand for one of those convicted in the 1993 World Trade Center bombing. Ten years! Terrorism is not a matter that can be left to law enforcement, with its deliberative process, built-in delays, and safeguards that may let the prisoner go free on procedural grounds.

Today, looking back on the past quarter century of terrorism, we can see that it is the method of choice of an extensive, internationally connected ideological movement dedicated to the destruction of our international system of cooperation and progress. We can see that the 1981 assassination of President Anwar Sadat, the 1993 bombing of the World Trade Center, the 2001 destruction of the Twin Towers, the bombs on the trains in Madrid, and scores of other terrorist attacks in between and in many countries, were carried out by one part or another of this movement. And the movement is connected to states that develop awesome weaponry, with some of it, or with expertise, for sale.

What should we do? First and foremost, shore up the state system.

The world has worked for three centuries with the sovereign state as the basic operating entity, presumably accountable to its citizens and responsible for their well-being. In this system, states also interact with each other -- bilaterally or multilaterally -- to accomplish ends that transcend their borders. They create international organizations to serve their ends, not govern them.

Increasingly, the state system has been eroding. Terrorists have exploited this weakness by burrowing into the state system in order to attack it. While the state system weakens, no replacement is in sight that can perform the essential functions of establishing an orderly and lawful society, protecting essential freedoms, providing a framework for fruitful economic activity, contributing to effective international cooperation, and providing for the common defense.

---

I see our great task as restoring the vitality of the state system within the framework of a world of opportunity, and with aspirations for a world of states that recognize accountability for human freedom and dignity.

All established states should stand up to their responsibilities in the fight against our common enemy, terror; be a helpful partner in economic and political development; and take care that international organizations work for their member states, not the other way around. When they do, they deserve respect and help to make them work successfully.

The civilized world has a common stake in defeating the terrorists. We now call this what it is: a war on terrorism. In war, you have to act on both offense and defense. You have to hit the enemy before the enemy hits you. The diplomacy of incentives, containment, deterrence and prevention are all made more effective by the demonstrated possibility of forceful pre-emption. Strength and diplomacy go together. They are not alternatives; they are complements. You work diplomacy and strength together on a grand and strategic scale and on an operational and tactical level. But if you deny yourself the option of forceful pre-emption, you diminish the effectiveness of your diplomatic moves. And, with the consequences of a terrorist attack as hideous as they are -- witness what just happened in Madrid -- the U.S. must be ready to pre-empt identified threats. And not at the last moment, when an attack is imminent and more difficult to stop, but before the terrorist gets in position to do irreparable harm.

Over the last decade we have seen large areas of the world where there is no longer any state authority at all, an ideal environment for terrorists to plan and train. In the early 1990s we came to realize the significance of a "failed state." Earlier, people allowed themselves to think that, for example, an African colony could gain its independence, be admitted to the U.N. as a member state, and thereafter remain a sovereign state. Then came Somalia. All government disappeared. No more sovereignty, no more state. The same was true in Afghanistan. And who took over? Islamic extremists. They soon made it clear that they regarded the concept of the state as an abomination. To them, the very idea of "the state" was un-Islamic. They talked about reviving traditional forms of pan-Islamic rule with no place for the state. They were fundamentally, and violently, opposed to the way the world works, to the international state system.

The United States launched a military campaign to eliminate the Taliban and al-Qaida's rule over Afghanistan. Now we and our allies are trying to help Afghanistan become a real state again and a viable member of the international state system. Yet there are many other parts of the world where state authority has collapsed or, within some states, large areas where the state's authority does not run.

That's one area of danger: places where the state has vanished. A second area of danger is found in places where the state has been taken over by criminals or warlords. Saddam Hussein was one example. Kim Jong Il of North Korea is another.

They seize control of state power and use that power to enhance their wealth, consolidate their rule and develop their weaponry. As they do this, and as they violate the laws and principles of the international system, they at the same time claim its privileges and immunities, such as the principle of non-intervention into the internal affairs of a legitimate sovereign state. For decades these thugs have gotten away with it. And the leading nations of the world have let them get away with it.

This is why the case of Saddam Hussein and Iraq is so significant. After Saddam Hussein consolidated power, he started a war against one of his neighbors, Iran, and in the course of that war he committed war crimes including the use of chemical weapons, even against his own people.

About 10 years later he started another war against another one of his neighbors, Kuwait. In the course of doing so he committed war crimes. He took hostages. He launched missiles against a third and then a fourth country in the region.

That war was unique in modern times because Saddam totally eradicated another state, and turned it into "Province 19" of Iraq. The aggressors in wars might typically seize some territory, or occupy the defeated country, or install a puppet regime; but Saddam sought to wipe out the defeated state, to erase Kuwait from the map of the world.

That got the world's attention. That's why, at the U.N., the votes were wholly in favor of a U.S.-led military operation -- Desert Storm -- to throw Saddam out of Kuwait and to restore Kuwait to its place as a legitimate state in the international system. There was virtually universal recognition that those responsible for the international system of states could not let a state simply be rubbed out.

When Saddam was defeated, in 1991, a cease-fire was put in place. Then the U.N. Security Council decided that, in order to prevent him from continuing to start wars and commit crimes against his own people, he must give up his arsenal of "weapons of mass destruction." Recall the way it was to work. If Saddam cooperated with U.N. inspectors and produced his weapons and facilitated their destruction, then the cease-fire would be transformed into a peace agreement ending the state of war between the international system and Iraq. But if Saddam did not cooperate, and materially breached his obligations regarding his weapons of mass destruction, then the original U.N. Security Council authorization for the use of "all necessary force" against Iraq -- an authorization that at the end of Desert Storm had been suspended but not cancelled -- would be reactivated and Saddam would face another round of the U.S.-led military action against him. Saddam agreed to this arrangement.

George P. Shultz, a former secretary of state, is a distinguished fellow at the Hoover Institution, Stanford University. This is adapted from his Kissinger Lecture, given recently at the Library of Congress.