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March 27, 2006
LONDON — In the weeks before the United States-led invasion of Iraq, as the United States and Britain pressed for a second United Nations resolution condemning Iraq, President Bush's public ultimatum to Saddam Hussein was blunt: Disarm or face war.
But behind closed doors, the president was certain that war was inevitable. During a private two-hour meeting in the Oval Office on Jan. 31, 2003, he made clear to Prime Minister Tony Blair of Britain that he was determined to invade Iraq without the second resolution, or even if international arms inspectors failed to find unconventional weapons, said a confidential memo about the meeting written by Mr. Blair's top foreign policy adviser and reviewed by The New York Times.
"Our diplomatic strategy had to be arranged around the military planning," David Manning, Mr. Blair's chief foreign policy adviser at the time, wrote in the memo that summarized the discussion between Mr. Bush, Mr. Blair and six of their top aides.
"The start date for the military campaign was now penciled in for 10 March," Mr. Manning wrote, paraphrasing the president. "This was when the bombing would begin."
The timetable came at an important diplomatic moment. Five days after the Bush-Blair meeting, Secretary of State Colin L. Powell was scheduled to appear before the United Nations to present the American evidence that Iraq posed a threat to world security by hiding unconventional weapons.
Although the United States and Britain aggressively sought a second United Nations resolution against Iraq — which they failed to obtain — the president said repeatedly that he did not believe he needed it for an invasion.
The memo indicates the two leaders envisioned a quick victory and a transition to a new Iraqi government that would be complicated, but manageable. Mr. Bush predicted that it was "unlikely there would be internecine warfare between the different religious and ethnic groups." Mr. Blair agreed with that assessment.
The memo also shows that the president and the prime minister acknowledged that no unconventional weapons had been found inside Iraq. Faced with the possibility of not finding any before the planned invasion, Mr. Bush talked about several ways to provoke a confrontation, including a proposal to paint a United States surveillance plane in the colors of the United Nations in hopes of drawing fire, or assassinating Mr. Hussein.
Consistent Remarks
The latest memo is striking in its characterization of frank, almost casual, conversation by Mr. Bush and Mr. Blair about the most serious subjects. At one point, the leaders swapped ideas for a postwar Iraqi government. "As for the future government of Iraq, people would find it very odd if we handed it over to another dictator," the prime minister is quoted as saying.
"Bush agreed," Mr. Manning wrote. This exchange, like most of the quotations in this article, have not been previously reported.
At their meeting, Mr. Bush and Mr. Blair candidly expressed their doubts that chemical, biological or nuclear weapons would be found in Iraq in the coming weeks, the memo said. The president spoke as if an invasion was unavoidable. The two leaders discussed a timetable for the war, details of the military campaign and plans for the aftermath of the war.
Discussing Provocation
Without much elaboration, the memo also says the president raised three possible ways of provoking a confrontation. Since they were first reported last month, neither the White House nor the British government has discussed them.
"The U.S. was thinking of flying U2 reconnaissance aircraft with fighter cover over Iraq, painted in U.N. colours," the memo says, attributing the idea to Mr. Bush. "If Saddam fired on them, he would be in breach."
It also described the president as saying, "The U.S. might be able to bring out a defector who could give a public presentation about Saddam's W.M.D," referring to weapons of mass destruction.
A brief clause in the memo refers to a third possibility, mentioned by Mr. Bush, a proposal to assassinate Saddam Hussein. The memo does not indicate how Mr. Blair responded to the idea.
Running Out of Time
Mr. Bush agreed that the two countries should attempt to get a second resolution, but he added that time was running out. "The U.S. would put its full weight behind efforts to get another resolution and would twist arms and even threaten," Mr. Bush was paraphrased in the memo as saying.
The document added, "But he had to say that if we ultimately failed, military action would follow anyway."
The leaders agreed that three weeks remained to obtain a second United Nations Security Council resolution before military commanders would need to begin preparing for an invasion.
Summarizing statements by the president, the memo says: "The air campaign would probably last four days, during which some 1,500 targets would be hit. Great care would be taken to avoid hitting innocent civilians. Bush thought the impact of the air onslaught would ensure the early collapse of Saddam's regime. Given this military timetable, we needed to go for a second resolution as soon as possible. This probably meant after Blix's next report to the Security Council in mid-February."
Mr. Bush devoted much of the meeting to outlining the military strategy. The president, the memo says, said the planned air campaign "would destroy Saddam's command and control quickly." It also said that he expected Iraq's army to "fold very quickly." He also is reported as telling the prime minister that the Republican Guard would be "decimated by the bombing."
Despite his optimism, Mr. Bush said he was aware that "there were uncertainties and risks," the memo says, and it goes on, "As far as destroying the oil wells were concerned, the U.S. was well equipped to repair them quickly, although this would be easier in the south of Iraq than in the north."
Planning for After the War
The leaders then looked beyond the war, imagining the transition from Mr. Hussein's rule to a new government. Immediately after the war, a military occupation would be put in place for an unknown period of time, the president was described as saying. He spoke of the "dilemma of managing the transition to the civil administration," the memo says.
Despite intense lobbying by the United States and Britain, a second United Nations resolution was not obtained. The American-led military coalition invaded Iraq on March 19, 2003, nine days after the target date set by the president on that late January day at the White House.